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STUDIES IN. THE; SOCIAL SCIENCES NUMBER Hi 



A STUDY OF STATE AID TO PUBLIC SCHOOLS 
IN MINNESOTA 

. BY 

RAYMOND ASA KENT, Ph.D. 
Sometime Assistant Professor of Education, in: the University of Minnesotai 




MINNEAPOLIS 

Bulletin of the University of Minnesota! 

April 1918 

Price: $1.00 



RESEARCH PUBLICATIONS 

OF THE 

UNIVERSITY OF MINNESOTA 

These publications contain the results of research work from various depart- 
ments of the University and are offered for exchange with universities; scientific 
societies, and other institutions. Papers will be published as separate monographs 
numbered in several series. There is no stated interval of publication. Application 
for any of these publications should be made to the University Librarian. 

STUDIES IN THE SOCIAL SCIENCES 

1. Thompson and Warber, Social and Economic Survey of a Rural Township in 
Southern Minnesota. 1913. $0.50. 

2. Matthias Nordberg Orfield, Federal Land Grants to the States, with 
Special Reference to Minnesota. 1915. $1.00. 

3. Edward Van Dyke Robinson, Early Economic Conditions and the Develop- 
ment of Agriculture in Minnesota. 1915, $1.50. 

4. L. D. H. Weld and Others, Studies in the Marketing of Farm Products. 
1915. $0.50. 

5. Ben Palmer, Swamp Land Drainage, with Special Reference to Minnesota. 
1915. $0.50. 

6. Albert Ernest Jenks, Indian- White Amalgamation: An Anthropometric 
Study. 1916. $0.50. 

7. C. D. Allin, A History of the Tariff Relations of the Australian Colonies. 
1918. $0.75. 

8. Frances H. Relf, The Petition of Right. 1917. $0.75. 

9. Gilbert L. Wilson, Agriculture of the Hidatsa Indians: An Indian Inter- 
pretation. 1917. $0.75. 

10. Notestein and Relf, Editors, Commons Debates for 1629. In press. 

11. Raymond A. Kent, State Aid to Public Schools in Minnesota. 1918. $1.00. 

12. Rupert C. Lodge, The Meaning and Function of Simple Modes in the 
Philosophy of John Locke. In press. 

STUDIES IN THE PHYSICAL SCIENCES AND MATHEMATICS 

1. Frankforter and Frary, Equilibria in Systems Containing Alcohols, Salts, 
and Water. 1912. $0.50. 

2. Frankforter and Kritchevsky, A New Phase of Catalysis. 1914. SO. 50. 

STUDIES IN ENGINEERING 

1. George Alfred Maney, Secondary Stresses and Other Problems in Rigid 
Frames: A New Method of Solution. 1915. $0.25. 

2. Charles Franklin Shoop, An Investigation of the Concrete Road-Making 
Properties of Minnesota Stone and Gravel. 1915. $0.25. 

3. Franklin R. McMillan, Shrinkage and Time Effects in Reinforced Con- 
crete. 1915. $0.25. 

(Continued inside back cover) 



Uty? Vtttwrattg nf iltmttfsflta 



STUDIES IN THE SOCIAL SCIENCES 



NUMBER 11 



A STUDY OF STATE AID TO PUBLIC SCHOOLS 
IN MINNESOTA 

BY 

RAYMOND ASA KENT, Ph.D. 
Sometime Assistant Professor of Education in the University of Minnesota 




MINNEAPOLIS 

Bulletin of the University of Minnesota 

April 1918 



.MgKss 



Copyright 1918 

BY THE 

University of Minnesota 



©CI.A499151 

IAY 27 1913 



PREFACE 

Education is not a charity; it is a public duty. It took the people of 
this country many years to recognize this principle. Gradually the rights 
of sovereignty changed from groups that voluntarily taxed themselves to 
groups that compulsorily taxed themselves. Gradually these groups 
extended their influence until they taxed all the property of the state for 
the education of all the children of the state. This relationship between 
democratic society and popular education is one that the people of this 
country feel with responding devotion. The Federal Government long 
ago recognized the principle that its strength and safety depend upon the 
general level of intelligence maintained by its citizens. As early as 1875 
it established its policy of granting lands to the states for the maintenance 
of schools. Since then other land grants have been made, and in addition 
large sums of money have been appropriated for the teaching of Home 
Economics and Agriculture. 

In every state there has grown up a permanent school fund, which 
combined with the revenue raised by taxation is used for the encourage- 
ment of public education. There are two fundamental principles or 
purposes governing the distribution of this money: one is the equalization 
of educational opportunities and the other is the stimulation of local 
educational sentiment. Apparently the administration of state funds for 
the purpose of realizing these principles has resulted in many evils. 
Injustice, inequality, and inequity frequently characterize the distribution 
of state moneys for school purposes. Equality of educational opportunities 
does not exist. Instead of stimulating local educational sentiment com- 
munities are frequently pauperized. The consequence is that practically 
every state is concerned just now with the problem of securing a more 
satisfactory and equitable distribution of state aid. Progress thus far has 
been made by more or less blind experimenting. State school funds have 
not infrequently been subject to legislative jugglery. Unfairness and 
injustice have often resulted. Practically no attempts have been made to 
work out a sensible program. No practical studies or investigations are 
available with the exception of Mr. Kent's. Mr. Kent's study of state 
aid in Minnesota thus represents a pioneer attempt to study one of the 
most important problems relating to our social welfare. That it should be 
duplicated in many states every one will admit, and that it should be used 
as the basis for determining a more sensible and rational program in our, 
own state, every one who is familiar with the local situation will agree. 
Not every question relating to state aid is answered by Mr. Kent, but he 
does deal with the more fundamental considerations. The careful and 
systematic development and solution of his problem commends itself to 
the scientific man, and should commend itself to the wise citizen and the 
competent legislator. 

L. D. Coffman 



CONTENTS 

Preface iii 

Chapter I — Problem and data 1-17 

A. Problem 1 

B. Data 4 

C. Sources of error 

Rural schools 10 

High schools 12 

Graded schools 14 

D. Method 16 

Chapter II — Historical summary of legislation affecting state aid 18-31 

Territorial provisions 18 

State provisions 

I. General aid 18 

II. State aid to high schools 19 

III. Graded school aid 22 

IV. Rural school aid ' 23 

V; Industrial aid 25 

VI. Rules in force 1912-13. 28 

Chapter III — Special aid to high schools 32-55 

Introductory 32 

Size of corporate units 33 

Attendance per pupil 34 

Cost per pupil per day 34 

Aid per pupil per day 35 

Local school tax 35 

Comparisons of tax levies 36 

Per cent of state aid 37 

Assessed valuation per pupil 38 

Effect of state aid on enrollment 39 

Enrollment and expense 40 

Correlation tables 

State aid and cost per pupil 44 

State aid and local tax 45 

Local tax and attendance 46 

Attendance and aid per day 47 

Population and local tax 48 

Population and expense 49 

Population and state aid 50 

Population and aid per day 51 

Summary 52 

Chapter IV — Special aid to graded schools 56-64 

Attendance per pupil 56 

Length of school year 56 

Cost per pupil per day 57 

Aid per pupil per day 57 

Per cent of state aid 58 

Local tax 59 



CONTENTS v 

Assessed valuation per pupil 59 

Summary 60 

Correlations 60 

Correlation tables 

Local tax and state aid 62 

Summary table 63 

Chapter V — Special aid to rural schools 65-91 

Attendance per pupil 65 

Length of school year 66 

Cost per pupil per day 68 

Aid per pupil per day 68 

Per cent of state aid 69 

Local tax 69 

Assessed valuation per pupil 70 

Monthly salary of teachers 71 

Correlations 75 

Four hundred sixty-one districts 

Local tax 77 

Per cent of state aid 78 

Increase in small schools 80 

Changes in population 83 

Changes in rural schools 85 

Per cent of high school enrollment from outside 88 

Summary 90 

Chapter VI — Special aid to high, graded, and rural schools compared 92-104 

Length of school year 92 

Assessed valuation per pupil 93 

Attendance per pupil 94 

Cost per pupil 96 

Aid per pupil 96 

Per cent of state aid 99 

Local tax 99 

Summary 102 

Proposed principles for governing state aid 103 

Chapter VII — Special aid to industrial departments 105-125 

Introductory 105 

Salaries 107 

Special instructors 108 

Regular teachers 109 

All teachers 109 

Time unit cost Ill 

Comparisons 119 

Correlations , 120 

Effect on student personnel 121 

Summary and conclusions 125 

Chapter VIII— Conclusions 126-133 

Data from Swift's Common School Funds 126 

Essentials of a permanent school fund 127 

Public school aid a policy in Minnesota 128 

Three forms of aid, three stages of development 129 

Conclusions of the study 132 



vi CONTENTS 



APPENDICES 

A. High school board rules 137-166 

B. Three tables from the report of the education commission 167-168 

C. School laws passed by the legislature of 1915 169-176 

D. Extracts from the Eighteenth Biennial Report of the State Superintendent 

of Public Instruction 177-181 

Bibliography 182-183 

TABLES 

I. Chart used for tabulation of data 6-7 

II. School districts 7 

III. Industrial departments 8,9, 10 

IV. Outline of state aid development 28, 29, 30 

State appropriations for public school aid 31 

V. Size of corporate units in which Minnesota high schools are 

located 33 

VI. Attendance per pupil per year in high school districts 34 

VII. Cost per day of attendance per pupil in high school districts. ... 34 

VIII. Aid per day of attendance 35 

IX. Local school tax in mills 35 

X. The per cent that state aid is of the annual maintenance income 

in high school districts 37 

XI. Assessed valuation per enrolled pupil 38 

XII. Per cent of a district's total annual enrollment that is in the 

high school 40 

XIII. Per cent of a district's total annual cost that is devoted to the 

high school 41 

XIV. Per cent of a district's total enrollment and annual cost to be 

found in the high school 42 

XV. Per cent of school expenditure devoted to high school in thirty- 
seven cities 43 

XVI. Per cent of total average daily attendance to be found in high 

schools in thirty-seven cities 43 

XVII. Relation of per cent of aid received to cost per pupil day of 

attendance 44 

XVIII. Relation between local tax levy and per cent of annual income 

derived from the state 45 

XIX. Relation between local tax rate and number of days attended 

per pupil 46 

XX. Relation between number of days attended per pupil and aid 

per day of attendance per pupil 47 

XXI. Relation between population and local tax rate 48 

XXII. Relation between population and expense per day of attendance 49 

XXIII. Relation between population and per cent of annual income 

derived from the state 50 

XXIV. Relation between population and aid in cents per day of attend- 

ance 51 

XXV. High school summary 52 

XXVI. Attendance per pupil per year by districts 56 



CONTENTS vii 

XXVII. Cost per pupil per day of attendance by districts 57 

XXVIII. Aid per pupil per day of attendance by districts 57 

XXIX. Part that state aid is of total annual income by districts 58 

XXX. Special school tax in mills by districts 59 

XXXI. Assessed valuation per enrolled pupil 59 

XXXII. Correlations in graded schools 60 

XXXIII. Relation between local tax levy and per cent of annual income 

derived from the state 62 

XXXIV. Grade school summary 63 

XXXV. Number of actual days attendance per pupil by district 65 

XXXVI. Length of school year in months 66 

XXXVII. Cost per pupil per day of attendance by districts 68 

XXXVIII. State aid per pupil per day of attendance by districts 68 

XXXIX. The per cent that state aid is of the total annual income for 

maintenance by districts 69 

XL. Local tax for maintenance as per mills of real taxable valuation 69 

XLI. Assessed valuation per enrolled pupil by districts 70 

XLII. Monthly salary of rural teachers 71 

XLIII. School districts 72, 73 

XLIV. Correlations in rural schools 75 

XLV. Local tax rate in mills 77 

XLVI. Per cent that state aid is of district's annual income 78 

XLVII. Increase in the number of schools having a total annual enroll- 
ment of less than ten pupils each 80 

XLVIII. Increase in the number of schools having a total enrollment of 

ten to twenty pupils each 81 

XLIX. Per cent of changes in population in thirty-four counties of 

Minnesota between 1900 and 1910 83 

L. Distribution of per cent of decrease in population in thirty-four 

of the counties of Minnesota between 1900 and 1910 84 

LI. Changes in rural schools and in rural population in twenty- 
eight counties of Minnesota between 1900 and 1910 85 

LII. Table LI arranged as array of percentage of rural population 

changes 86 

LIU. Changes in schools by counties 87 

LIV. Per cent of high school enrollment from outside 88 

LV. Distribution of 1,185 rural schools according to annual enrollment 89 

LVI. Rural school summary 91 

A. Length of school year in months 92 

B. Assessed valuation per enrolled pupil 93 

C. Attendance per pupil in days per year 94 

D. Cost per pupil per day in cents 96 

E. Aid per pupil-day in cents 96 

F. Per cent of state aid per year 99 

G. Local tax levy in mills 99 

LVII. Summary 102 

LVIII. Plan of original data sheet for cost of high school instruction. . . 106 

LIX. Salaries of special instructors 108 

LX. Salaries of regular high school teachers 109 

LXI. Salaries of all groups of high school instructors 109 

LXII. High school salary distributions Ill 



ii CONTENTS 

LXIII. Time-unit cost of departments in seventy-one high schools 

maintaining four departments of work 112 

LXIV. Unit cost of academic instruction in industrial and non-indus- 
trial high schools 115 

LXV. Unit cost of academic teaching in one hundred and sixty-four 

high schools 116 

LXVI. Unit cost of academic instruction in Minnesota 116 

LXVII. Time devoted by industrial instructors to teaching academic 

high school subjects 118 

LXVIII. Pupil recitation cost in Newton, Massachusetts, high schools. . . 118 

LXIX. Academic 118 

LXX. Comparisons of unit cost of high school instruction 119 

LXXI. Correlation of unit cost in high school 120 

LXXII. Teacher training departments 121 

LXXIII. Schools receiving $2,500 industrial aid 122 

LXXIV. Schools receiving $1,800 industrial aid 122 

LXX V. Per cent of outside enrollment in industrial high schools for the 

last eleven years 123 

LXX VI. Divisions of high school enrollment for the state on the basis of 

per cent of total high school enrollment 123 

APPENDIX B 

I. Relation of valuation and taxation to cost of instruction 167 

II. Relation of state support to total cost of maintenance 168 

III. Attendance and salaries 168 

APPENDIX D 

I. Growth of permanent school fund since 1862 177 

II. Permanent school fund July 31, 1914 177 

III- A. Appropriations for public schools 177 

III-B. Increases in state aid 178 

IV. Apportionment of the current school fund from 1864-1914 178 

V. Summary for last fifty-two years 179 

VI. Special aid summary 179 

VII-A. State aid to high schools, year ending July 31, 1913 180 

VII-B. High schools, year ending July 31, 1914 180 

VIII-A. Graded schools, year ending July 31, 1913 180 

VIII-B. Graded schools, year ending July 31, 1914 180 

IX-A. State aid to consolidated schools, year ending July 31, 1913. . . . 180 

IX-B. Consolidated schools, year ending July 31, 1914 181 

X-A. Semi-graded schools, year ending July 31, 1913 181 

X-B. Semi-graded schools, year ending July 31, 1914 181 

XI-A. Class A, year ending July 31, 1913 181 

XI-B. Year ending July 31, 1914 181 



CONTENTS 



FIGURES 

1. Per cent of district's total expenditure and enrollment in the high school 

department 41 

2. Increasing length of term, in days 67 

3. Changes in the rural schools of Minnesota during a period of ten years.. 74 

4. Increasing cost of education per pupil in average daily attendance 75 

5. Increase in ten years in schools enrolling less than ten pupils 82 

6. Distribution of 1,185 rural schools according to annual enrollment 89 

7. Assessed valuation per enrolled pupil 93 

8. Pupil attendance in days per year 95 

9. Cost per day of attendance per pupil 97 

10. Aid per day of attendance per pupil 98 

11. Per cent that state aid is of total maintenance income 100 

12. Local tax levy 101 

13. Salaries of high school instructors by departments 110 

14. Unit cost of high school instruction by departments 113 



A STUDY OF STATE AID TO PUBLIC SCHOOLS 
IN MINNESOTA 

CHAPTER I 

PROBLEM AND DATA 

A. Problem 

The biennial Legislature of Minnesota in April, 1913, created a Public 
Education Commission "to make careful study and investigation of 
conditions in this . state with respect to public education, including the 
public school system and public educational institutions, and the relation 
of the educational institutions one to another and to the public school 
system; to recommend a general plan for the organization and adminis- 
tration of public education and public educational institutions. The 
general purpose of the Commission shall be to effect economy and efficiency 
with respect to the several branches of public education in this state." 1 

The Governor appointed as members of this Commission: W. D. 
Willard, cashier, First National Bank, Mankato; W. G. Crosby, attorney, 
Duluth; J. A. DuBois, physician, Sauk Centre; Marie Lovsnes, county 
superintendent of schools, Norman County; W. F. Webster, principal 
of East High School, Minneapolis; J. A. Hartigan, president Farm 
Mortgage Bond Company, St. Paul; C. G. Schulz, state superintendent 
of education. The Commission organized in June by electing W. D. 
Willard as chairman, and the writer of this study as secretary. 2 

The report of the Commission 3 does not include any comprehensive 
statement of the method or of the data en which its conclusions and 
recommendations were founded. After the Commission had concluded 
its work the data compiled were placed on file in the office of the State 
Superintendent of Education. 

As stated above, the work of the Commission was "to effect economy 
and efficiency with respect to the several branches of public education in 
the state." A part of the problem was to determine where economy 
could be most reasonably looked for and how the test of efficiency could 
be applied. So far as these problems affect the state one would naturally 
think of them first as applying to the funds which the state distributes as 
its share of the support "to the several branches of public education." 

Especially does this application seem the proper one in the light of the 
total amount of money thus involved annually. "Minnesota's per- 
manent school fund .... is now, in round figures, $25,000,000, and 
is expected to reach $100,000,000, or even $200,000,000, from the sale of 

1 General Laws of Minnesota, 1913 ch. 571. 

2 Report of the Minnesota Public Education Commission, 3, 7. 

8 State of Minnesota, Public Education Commission, Report to the Governor. 



2 RAYMOND ASA KENT 

school lands and timber and the royalties on iron ore. 4 The income is 
approximately $1,000,000 a year." 5 

' 'The state adds to the current school fund for distribution in the same way, 
the proceeds of a one-mill tax, which now yields above $1,250,000 a year." 6 

"State aid to schools for special purposes, now amounting to $2,000,000 
a year, is distinct from the school funds and is given from the general 
revenue funds." 7 

Here, then, is a total of four and a quarter millions of dollars given by 
the state each year to its public schools. 

Plainly and simply asked, the inquiry becomes: What is the effect 
of state aid? Is state support securing satisfactory results commensurate 
with the amount of money given? These questions have never been 
answered. When one tries to secure evidence outside of Minnesota that 
might help in answering them, one finds a similar dearth of information. 

State aid to high schools was begun as early as 1871, in Maine. 8 Wis- 
consin was the second 9 and Minnesota was the third state in the Union to 
make such provision, 10 but up to the time of this investigation, as far as 
we know, a careful study had never been made as to how state aid was 
actually affecting public schools. So far as we know no aims that have 
been set up and no statements of accomplishments in connection with 
state subsidy of public education have been based on any careful, intensive 
study. The Commission, therefore, was face to face with finding its own 
answer to its inquiry. 

FORMS OF AID 

As will be explained more in detail in Chapter II, there are two 
general forms of state aid. The first is the current school fund, which is 
distributed to all schools, irrespective of their classification, number of 
departments, enrollment, or any factor, 11 except the number of children 
between six and twenty-one years of age attending public school forty 
days or more during the year. 12 The second form of aid includes special 
aid to each of the following groups of schools: 

1 . High schools 

2. Graded schools 

3. Semi-graded schools 

4. Rural schools 

5. Consolidated schools 

* For further explanation see Chapter 2. 

6 Report of Minnesota Commission, 21, 22. See also Appendix C. 
6 Report of Minnesota Commission, 22. 
■> Ibid. 

8 Johnston and others, The Modern High School, 51. 
» Ibid., 52. 
« Ibid., 53. 

11 Except the legal length of the school year, which is practically no condition now. See table 35. 

12 References to all legal data are given in Chapter 2. 



STATE AID TO PUBLIC SCHOOLS 3 

Aid for special departments in high or graded schools is of three kinds: 13 

1. Aid for departments of teacher training 

2. Aid for the three industrial departments — agriculture, shop 

work, and home economics 

3. Aid for agriculture and either shop work or home economics 
The ramifications of special state aid are complex. They have become 

so because a school may receive more than one form of special aid. 14 But 
whatever the combinations of aid received, for purposes of aid distribution, 
all schools are classed in one of the fundamental divisions of high, graded, 
semi-graded, or rural. 

Inasmuch as special state aid to industrial departments comprises so 
large a part of state support to high schools, 15 this particular form of 
aid was made a special part of the investigation and a separate chapter 
of this report is devoted to it. 

Among the forms of special departmental aids we are not particularly 
concerned here with the one for teacher-training departments. These 
departments sustain relations to the high school, to the community, and 
to the state entirely different from the other specially aided departments. 
They were not established, nor are they maintained, for the benefit of the 
local community, for the children of the community, or for the pupils of 
the high schools of the state. Their primary purpose was and is to benefit 
the rural schools of the state. 16 High school, high school community', and 
pupil benefits are quite secondary to their aim. For this reason the state 
has from their inception consistently pursued the policy of almost if not 
quite complete support of such departments. They exist for the state as 
distinct from the community. Notwithstanding their tremendous impor- 
tance, the money spent for them has such different purposes to serve from 
those of other funds about which we are here concerned that teacher- training 
departments are considered only incidentally. In determining the total 
amount of state subsidy which a high school district received in a given year, 
special aid for teacher-training departments, therefore, has not been included. 

Our problem, then, becomes one of a study concerning state aid to 

1. Certain separate groups of schools 

2. Special departments of work 

We wish to find out : first, what these schools or departments receive 
in special aid from the state; second, what the effect of this aid is upon the 
schools or departments; third, whether the aid now given is productive 
of educational "efficiency" and "economy." 

18 For changes in force in 1915, see Appendix B. 

14 This fact is made clear in Chapter 2. 

18 Only two graded schools, one at Lewiston and one at Westbrook, had taken advantage of this 
support up to the time of this study. See Eighteenth Annual Report of the Inspector of State High Schools, 
39; Nineteenth Report, 34, 35; and Twentieth Report, 52, 53. 

18 See Thirteenth Annual Report of the Inspector of State High Schools, 37. 



4 RAYMOND ASA KENT 

The problem is treated in two aspects. One chapter is devoted to a 
brief historical summary of the legislative enactments which relate to 
state support of public education since Minnesota was created a territory. 
By far the greatest proportion of the report, however, deals with the 
problem from a study of its statistical aspects. 

In the remaining chapters, therefore, the following divisions of subject 
matter are treated : 

a. Historical summary of legislation concerning state support. 

b. Special state aid to high schools. 17 

c. Special state aid to graded schools. 

d. Special state aid to rural schools. 

e. Special state aid to industrial departments. 

B. Data 

SOURCES OF DATA 

In trying to determine what facts should be collected from which the 
desired information might be obtained, it was soon discovered that certain 
basic information was as essential concerning one group of schools as con- 
cerning another. In the beginning, therefore, there was no need to divide 
the schools into the three main groups in seeking information. 

The latest school year for which data were then available was 1912-13. 
That year there were 216 18 high schools and 217 19 graded schools in Min- 
nesota receiving state aid. It seemed quite feasible to attempt to collect 
information from each of these several schools. On the other hand, there 
were over 7,5Q0 20 districts maintaining schools classified as semi-graded 
and rural. To collect the desired information from each of these districts 
was impracticable and unnecessary. Some plan of selecting typical rural 
schools, chosen from the various parts of the state so as to be truly repre- 
sentative of the entire state would satisfy the purpose, require much less 
work, and give quite as satisfactory results as to attempt to include all of 
the 7,500. 

The plan finally adopted was that of selected counties. The state 
as a whole was surveyed. Certain counties distributed over the state 
were chosen because they were representative of the whole state — geo- 
graphically; educationally, so far as rural schools were concerned; eco- 
nomically; industrially; and socially, as to distribution of population. 
The number of such counties that should be included was not fully decided 
upon until the selection had been fairly well determined. It was then 
decided that fourteen counties would satisfy the conditions and needs of 

17 Each of the school divisions will be described in detail in the next chapter. 

18 Twentieth Annual Report of the Inspector of Slate High Schools, 36. 

19 Eighteenth Annual Report of the Inspector of State Graded Schools, 8. 

20 Eighteenth Biennial Report, Superintendent of Public Instruction, 16. 




Fourteen counties used in rural school computations 



1. Carlton 4, Fillmore 7. Kittson 10. Pipestone 

2. Dodge 5. Hubbard 8. Meeker 11. St. Louis 

3. Douglas 6. Isanti 9. Norman 12. Scott 

13. Wilkin 14. Watonwan 



6 RAYMOND ASA KENT 

the problem. The location and names of the fourteen counties are shown 
in the accompanying outline map of Minnesota. 

Table I shows one of the pages used for the tabulation of the data 
first collected. The first space to the left gives the number of each district. 
In column 1 is stated the total enrollment of each school for the school 
year 1912-13. Column 2 gives the number of pupils enrolled for whom 
the current fund money was given their district for 1912-13 — that is, the 
number of pupils who attended school in each district forty days or more 
that year. Column 3 gives the number of total days attendance for the 
pupils in each district. Column 4 gives the average number of days at- 
tended per pupil enrolled. Column 5 states the number of teachers em- 
ployed in each district that year. 21 Column 6 contains the sum of the 
figures for the same district as listed in columns 7 and 8. Column 8 states 
the amount of money raised by special school tax levied upon the assessable 
property of the district for the year 1912-13. Column 7 contains the sum 
of the figures for the same district as listed in columns 9 and 10. Column 
9 states the amount paid the district by the state because of the number 
of pupils listed in column 2 — that is, it states the amount of the current 
school fund which the district received for 1912-13. 22 Column 10 states 
the amount of special aid which the districts received for the same year. 
Column 11 gives the assessed valuation of the districts, and column 12 is 
the rate of special local school tax in mills. The figures in the first five 
columns were obtained directly or indirectly from the original reports of 
the county superintendents, which were on file in the office of the State 
Superintendent of Public Education. The figures in column 2 are those 
which were actually used by the State Department of Education for dis- 
tribution of the state apportionment fund. The figures in columns 11 and 
12 were furnished directly to the Commission at its request by the county 
auditor of every county of the state on the blank shown in Table II. The 
amount in column 8 was in every case secured by multiplying the assessed 
valuation by the rate of special school tax. The amounts in columns 
9 and 10 were taken directly from the original lists on file in the office of 
the State Superintendent. Column 13 states the per cent which the amount 
in column 7 is of the total amount in 'column 6, that is, the proportion 
(per cent) that all money received from the state is of a district's total 
school revenue for support in 1912-13. 23 The information covered by the 

21 Number of annual teaching positions. If one instructor worked four months and another five, 
in the same district, this counts as only one for the year. 

22 In discussing any class of schools the current fund is treated as part of the total state aid. For the 
year which this study covers it amounted to about $5.30 per annum per child attending forty days. This 
is a large enough part of the total per capita cost to be considered of material value to the local community 
in supporting its schools. The fact that the method of distribution of the current fund is different from 
that employed in the case of any other aid given is no reason for studying this fund separately from 
special state aid. 

23 None of these figures includes the amount raised for bonded indebtedness. The county auditors 
did not include in the special local school tax the amount of mills levied because of bonded indebtedness. 



TABLE I 



District 


Basic Data 




Present Sources 


of Revenue 
































State aid at 
present 


Per cent o 
state aid tc 




- 




















Remarks 




Enrollment 


Days attendance 


Teachers 




3tate and local 


State aid 




Local revenue 




total at 


















Special 








present 




Rural 


Total 


For appor- 


Total 


Average 


Number 


Total 


State 


Local 


Apportion- 


Assessment 


Rate 








tionment 




per pupil 










ment 






(Mills) 










1 


2 


3 


4 


5 


6 


7 


8 


9 


10 


11 


12 








85 


17 


15 


1,270 


115 




$ 551 


$169 


$382 


S 79 


S 90 


S 34,767 


11.0 


S169 


30.6% 


Class B 


86 


37 


31 


2,816 


76 




564 


299 


265 


164 


135 


53,052 


5.0 


299 


35.2 


Class A 


87 


17 


16 


1,538 


90 




488 


175 


313 


85 


90 


39,118 


8.0 


175 


35.8 


Class B 


88 


18 


18 


1,543 


85 




467 


163 


304 


95 


68 


60,827 


5.0 


163 


34.9 


Class C 


89 
90 
91 


26 
IS 

17 


22 
9 
16 


2,301 

644 

1,899 


88 
43 
112 




432 
453 
451 


117 

48 

220 


315 
405 
231 


117 
48 
85 


135 


62,972 
101,127 
53,662 


5.0 
4.0 

4.3 


117 

48 

220 


27.0 
10.5 
48.7 






Class A 


92 


17 


15 


2,014 


118 




432 


169 


263 


79 


90 


62,691 


4.2 


169 


39.1 


Class B 


93 


19 


17 


2.131 


111 




625 


225 


400 


90 


135 


55,519 


7.2 


225 


36.0 


Class A 


94 


43 


39 


5,102 


119 




788 


392 


396 


207 


135 


65,972 


6.0 


392 


49.0 


Class A 


95 
96 


16 

24 


10 
24 


1,328 
2,802 


83 
116 




313 
451 


53 
217 


260 
234 


53 
127 


90 


59,125 
58,571 


4.4 
4.0 


53 
217 


16.8 
48.1 




Class B 


97 


31 


30 


3,455 


111 




637 


249 


388 


159 


90 


88,222 


4.4 


249 


39.0 


Class B 


98 


24 


19 


2,052 


96 




886 


236 


650 


101 


135 


86,720 


7.5 


236 


26.6 


Class A 


99 

100 


20 
19 


10 
19 


1,010 
2,532 


50 
133 




286 
625 


53 
236 


233 
389 


53 
101 


135 


55,593 
51,899 


4.2 
7.5 


53 
236 


18.5 
37.7 




Class A 


101 
102 
103 


11 
16 
12 


9 
14 

11 


1,167 
1,338 
1,293 


106 
83 
117 




179 
266 
403 


48 
74 
148 


131 
192 

255 


48 
74 
58 


90 


29,781 
63,976 

44,814 


4.4 
3.0 
5.7 


48 

74 

148 


26.8 
27.8 
36.7 






Class B 


105 


18 


16 


1,968 


109 




429 


153 


276 


85 


68 


49,201 


5.6 


153 


35.6 


Class C 


106 


19 


16 


2,118 


111 




505 


175 


330 


85 


90 


78,472 


4.2 


175 


34.6 


Class B 


107 


24 


22 


2,578 


107 




1,084 


257 


827 


117 


140 


55,145 


15.0 


257 


23.0 


Class B 


109 


11 

25 


7 
21 


669 

2,385 


61 
95 




281 
601 


37 
246 


244 
355 


37 
111 


135 


44,413 
53,032 


5.5 
6.7 


37 
246 


13.1 
40.0 




110 


Class A 


111 


16 


13 


1,809 


106 




473 


159 


314 


69 


90 


52,380 


6.0 


159 


33.6 


Class B 


113 


3 


3 


232 


77 




310 


16 


294 


16 




36,723 


8.0 


16 


5. 16 




114 


10 


9 


1,166 


116 




395 


138 


257 


48 


90 


59,720 


4.3 


138 


34.9 


Class B 


115 


29 


29 


3,327 


115 




599 


294 


305 


154 


140 


32,748 


9.3 


294 


49.0 


Class B 


116 


25 


23 


3,063 


123 




674 


307 


367 


122 


185 


55,605 


6.6 


307 


45.0 


Class A 


117 
118 
119 


1 1 


10 


1,054 


95 




484 


103 


381 


53 


50 


65,719 
55,285 
55,177 


5 .8 


103 


21 .0 




20 


12 


1,390 


70 




423 


64 


359 


64 




6.5 
1.0 


64 


15. 1 














55 




55 










Jt. Olmsted 


120 


17 


12 


1,520 


89 




560 


199 


361 


64 


135 


51,636 


7.0 


199 


35.5 


Class A and Mower 


121 


14 


14 


1,653 


118 




'579 


164 


415 


74 


90 


69,102 


6.0 


164 


28.3 


Class B 


122 


14 


11 


1,466 


104 




486 


193 


293 


58 


135 


42,387 


7.0 


193 


39.7 


Class A 


123 


11 


8 


1,077 


98 




467 


104 


363 


14 


90 


51,919 


7.0 


104 


22.2 


Class B 


124 


30 


30 


3,148 


105 




859 


249 


610 


159 


90 


63,578 


9.6 


249 


28.9 


Class B 


125 


25 


21 


1,941 


78 




562 


246 


316 


111 


135 


63,174 


5.0 


246 


43.7 


Class A 


126 


20 


17 


1,805 


90 




359 


180 


179 


90 


90 


33,145 


5.4 


180 


50.1 


Class B Jt. Mower 


127 


18 


18 


2,143 


119 




511 


230 


281 


95 


135 


25,561 


11.0 


230 


45.0 


Class A Jt. Mower 


128 


9 


9 


1,279 


142 




516 


138 


378 


48 


90 


34,373 


11.0 


i38 


26.7 


Class B 


129 


23 


16 


2,081 


90 




789 


175 


614 


85 


90 


65,272 


9.4 


175 


22. 1 


Class B 


130 


21 


18 


1,746 


83 




547 


95 


452 


95 




53,158 


8.5 


95 


17.3 






131 
132 


29 
8 


19 

7 


2,134 
1,025 


73 
128 




457 
541 


191 
92 


266 


101 
42 


90 


48,306 


5.5 


191 
92 


41.7 
19.0 


Class B 




449 


50 


47,716 


9. 4 





No school. 



STATE AID TO PUBLIC SCHOOLS 7 

above outline was secured for as many as possible of the rural schools 
in the fourteen counties. 

The number of rural districts which it was finally possible to include 
from each county chosen is as follows: 

1. Carlton 23 

2. Dodge 74 

3. Douglas . . 88 

4. Fillmore 166 

5. Hubbard 61 

6. Isanti 62 

7. Kanabec 61 

8. Meeker 86 

9. Norman 91 

10. Pipestone 66 

11. St. Louis 51 

12. Scott 63 

13. Watonwan 54 

14. Wilkin 65 

1,011 
TABLE II 

County 

I certify that the following is a correct statement of the school tax rate and 

assessed valuation for the school districts of 

County for the school year ending July 31, 1913. 

Signed 

County Auditor. 

SCHOOL DISTRICTS 

Include in the special school tax the local 1-mill but not the state 1-mill. 



NAME OR 
NUMBER 


ASSESSED 
VALUATION 


SPECIAL 
SCHOOL TAX 


NAME OR 
NUMBER 


ASSESSED 
VALUATION 


SPECIAL 
SCHOOL TAX 



















































Information similar to the above was obtained also for as many as 
possible of the graded school districts and the districts maintaining high 
schools. In these two latter groups, out of all the districts maintaining 



8 RAYMOND ASA KENT 

graded schools, 206 were finally included; and out of all the high school 
districts, 197 were included. 

Most of the basic data concerning special departments in the high 
schools were secured from the original reports sent by the schools to the 
State Inspector of High Schools. 24 A copy of one of these report-blanks 
is shown in Table III. 

The distribution of the time of the instructors in departments receiving 
special aid was checked by correspondence with the superintendents of 
the several schools involved. 

Other data are to be found in this study. The sources of such data are 
stated at the appropriate places. 



TABLE III 
Special Instruction Statistics. Return not later than June 15. 

INDUSTRIAL DEPARTMENTS 
OF THE 



Instructors: 

Name 



High or Graded School 

For the school year 1913-1914 

Institution 
Position Where Educated Salary 

. Superintendent $ 

. Agriculture 

. Home Economics 

. Shopwork 

Total $ 



Enrollment: 

Agriculture: Home Economics: 

High School High School 

Short Course Short Course. . . . 

Grades . . Grades 



Shopwork : 
High School . 
Short Course. 
Grades 



Expenditure: 
Agriculture: 

Salaries (Not including Superintendent) 

Real Estate 

Agriculture 

Home Economics 

Shopwork 

Not Classified 



Total 



$. 



Attach a typewritten statement of expenditure showing the outlay in each of 
the three departments. This statement should be itemized to show in a general 
way how the money has been spent. It must be certified by the secretary of the board. 



24 The use of these reports covering the year 1912-13 was kindly allowed the Commission by Mr. 
George B. Aiton, at the time State Inspector of High Schools. 



STATE AID TO PUBLIC SCHOOLS 9 

TABLE III (Continued) 

Association: 

No. of associated districts Total area of associated districts 

Area of central district 

No. of pupils from associated districts in central school Amount 

of tax contributed by associated districts $ Amount of 

tuition charged to home districts of non-residents $ 

On page two state service rendered to associated districts. 

Let each special instructor add a signed statement (preferably typewritten and 
on paper of this size) of the methods and the activities of his department, including 
class work, field work, extension work, meals served, articles of farm utility, school 
gardens, etc. 

Instruction (fill these forms) 1. 
Agriculture: 



subject 



NUMBER 
WEEKS 



ENROLLMENT 



LENGTH OF 
RECITATION 



Home Economics: 



subject 



NUMBER 
WEEKS 



ENROLLMENT 



LENGTH OF 
RECITATION 



10 



Shopwork: 



RAYMOND ASA KENT 
TABLE III (Continued) 



SUBJECT 


NUMBER 
WEEKS 


CLASS 


ENROLLMENT 


LENGTH OF 
RECITATION 





















































Extension Work: 
Farmers' Short Course 

Length in days of short course Attendance . 

Farmers 1 Institute 

Dates when held 



. Total attendance . 



Rural Meetings 

No. held Total attendance . 

Other Meetings, Contests, and Fairs held 



Signed . 



Superintendent 



C. Sources of Error 



I. RURAL SCHOOLS 



1. Some may object to the method by which the districts were selected. 
A selection by counties, it may be asserted, is less representative of the 
state than a random selection of the same, or even of a less, number of 
districts from the entire state with every county represented. The pre- 
sumption of representativeness in several items is the reason why each of 
these counties was originally chosen. This presumption is verified by the 
distributions as they appear later in the statistical tables. They approach 
normal distribution. 25 

2. The regular meetings of the Legislature are biennial. All forms of 
special aid received by any of the schools come solely from legislative 



26 See also Woods, The Influence of Monarchs, 27. 



STATE AID TO PUBLIC SCHOOLS 11 

appropriation. It sometimes occurs during the year of legislative recess 
that the number of schools accepted for a particular form of aid is larger 
than was contemplated. The aid is then prorated among all those schools 
that year. The Legislature at its next meeting almost without fail makes 
up in part or in whole the amount of the previous deficiency, and this 
deficiency appropriation is distributed during the school year following 
the legislative session. 20 

Was 1912-13 a year when such a deficiency might have been distributed 
as additional state aid? If so, was there such aid actually distributed that 
year? 

The regular sessions of the Legislature are held beginning in January 
of each odd-numbered year. The Legislature convened in January, 1911. 

There was no reimbursement in special aid. There was a deficit to 
every class of rural school except the semi-graded. 27 

State apportionment, which is included in this study as a part of the 
state's contribution to the local district, though it is not special state aid, 
is in no way affected by legislative appropriation. 

The result of the first condition is to make the effects of state aid less 
noticeable than they would be if the aid had been paid in full. Both 
positive and negative figures of correlation are smaller than they would be 
if there had been no deficit for the year which the study covers. 

3. The correlation figures are not corrected for attenuation; they are 
gross. The nature and sources of the data made such correction out of 
the question. 

All scientific work presupposes that the measurements of facts are as 
nearly accurate as possible. There will, however, in such measurements as 
these commonly be considerable error in each individual fact of those to 
be related. One district might have levied a much larger tax one year 
than ordinarily. For sound reasons another district might have found 
itself with a greater surplus than usual and so for the year in which 
we happened to study it, it might have levied a school tax much less than 
its usual levy. 

To correct this kind of an error (called attenuation) arising from chance, 
it is necessary to have at least two independent measures of the items to 
be related, or to have data from a larger area. In this case we ought to 
have data covering two years instead of one year, in all these items. 

The result of this lack of attenuation is to make the correlation figures 
in all probability less than they would have been if corrected for attenu- 
ation. 28 

26 See deficiency appropriation amounts, table at end of Chapter 2. 

27 Eighteenth Report, Superintendent of Public Instruction, table l\ p. 10. 

28 Adapted from Thorndike's Mental and Social Measurements, 127-129. 



12 RAYMOND ASA KENT 

II. HIGH SCHOOLS 

1. There is no source of error from selection. Over ninety per cent 
of the total number of cases were included. 29 

2. There is no source of error from reimbursement because there were 
no shortages in aid to be made up to high schools or to any of their depart- 
ments. 30 

3. All that has been said with regard to non-attenuation of rural school 
figures of correlation applies with equal force here. 

4. In computing the costs of instruction in high schools there has not 
always been as accurate a distribution of every instructor's time as could 
be desired. In figuring the cost of academic instruction there is an equiva- 
lent of individual distribution by including all the time of all the instructors. 
In the cases of special instruction the total time of each instructor was ac- 
counted for as far as it could be done. The special reports from the in- 
dustrial departments to the State Inspector of High Schools included such 
information in only a negligible number of cases. Definite data for each 
school were secured through personal correspondence with the school's 
superintendent. There is probably some error from this source, but it 
is very small. 

5. Statements of expenses in these special departments (see Table III) 
are not so accurate as one wishes they might be. This is particularly true 
in the departments of agriculture. Under this division were presumed to 
be placed expenses for maintenance. By the actual statements of the 
reports, however, equipment expenses were sometimes included. Where 
they were so listed they were subtracted. That equipment was included 
in instances where it was not so itemized, is but to be supposed. 

The Commission felt the desirability of securing accurate data here. 
It realized, however, the impossibility of such an undertaking in the time 
allotted. In not a few cases, the reports had attached to them some 
statements of expense from the local boards of education. From exami- 
nation of these reports and from over ten years of personal acquaintance 
with school boards of districts from graded to city systems, some of which 
time has been spent attempting to ferret out separate items of maintenance, 
support, etc., from the reports of a salaried clerk, the writer believes that 
under the conditions of school accounting now prevalent in the state 
these reports are as accurate as are any available for a representative group 
of high schools in Minnesota. This belief is supported by those with wider 
and longer experience in the state in these matters than the writer has had. 

The crudeness, from the scientific point of view, of such data and the 
unreliability of results computed from them are fully realized. There are 

*» See accompanying list. 

80 Eighteenth Report, Superintendent of Public Instruction, 10. 



STATE AID TO PUBLIC SCHOOLS 



13 



some things to be said in favor of including the data, however. In the 
first place, the presentation of the data so gathered with an understanding 
of their unreliability, and the reason for the same, may hasten better ac- 
counting and the possibility of authentic information for future computa- 
tions. In the second place, the item of greatest proportion and importance 
in even such expensive departments as shop work and agriculture is that 
of salary, and the data on this are reliable. In the third place, these reports 
are the bases for the distribution of the special state aid to these depart- 
ments, and therefore, though inaccurate, bear a relation to the amount 
of aid distributed that is both logical and of significant importance. In 
the fourth place, some concepts of the respective costs of these depart- 
ments, inaccurate though they may be, can not but help to clear the situa- 
tion. We know that the state has been distributing large sums of money 
for these special departments. Our idea of just how and where this money 
has been used and how justifiable its local consumption, has been entirely 
lacking, vague, or based merely on personal opinion. The state has sorely 
needed standardization in determining these matters. The first step in 
this direction, short and faltering though it may be, more than justifies 
itself. In the fifth place, some of these specific items can be and have 
been compared with and checked by investigations elsewhere. In this way 
an idea of the nature and of the amount of error can be more definitely 
and accurately judged. 



High School Districts Included in This Study 



Ada 

Adrian 

Aitkin 

Akeley 

Albert Lea 

Alden 

Alexandria 

Amboy 

Annandale 

Anoka 

Appleton 

Argyle 

Arlington 

Atwater 

Aurora 

Bagley 

Barnesville 

Belle Plaine 

Bemidji 

Benson 

Bird Island 

Biwabik 



Blackduck 

Blooming Prairie 

Brainerd 

Breckenridge 

Browns Valley 

Buffalo 

Buhl 

Caledonia 

Cambridge 

Canby 

Cannon Falls 

Cass Lake 

Chaska 

Chatfield 

Chisholm 

Clarkfield 

Cloquet 

Cokato 

Coleraine 

Cottonwood 

Crookston 

Dassel 



Dawson 

Delano 

Deer River 

Detroit 

Dodge Center 

Eagle Bend 

East Grand Forks 

Elbow Lake 

Elk River 

Ely 

Eveleth 

Excelsior 

Fairfax 

Fairmont 

Faribault 

Farmington 

Fergus Falls 

Fertile 

Fosston 

Frazee 

Fulda 

Gaylord 



14 



RAYMOND ASA KENT 



Gilbert 

Glencoe 

Glenwood 

Graceville 

Grand Rapids 

Granite Falls 

Hallock 

Halstad 

Harmony 

Hastings 

Hawley 

Hector 

Henderson 

Herman 

Heron Lake 

Hinckley 

Hibbing 

Hopkins 

Houston 

Howard Lake 

Hutchinson 

International Falls 

Jackson 

Janesville 

Jordan 

Kasota 

Kasson 

Kenyon 

Kerkhoven 

Lake Benton 

Lake City 

Lake Crystal 

Lake Park 

Lakefield 

Lamberton 

Lanesboro 

LeSueur 

Le Sueur Center 

Litchfield 

Little Falls 

Long Prairie 

Luverne 

Mcintosh 

Mabel 



Madelia 

Madison 

Mankato 

Mantorville 

Maple Lake 

Mapleton 

Marshall 

Milaca 

Minneota 

Montevideo 

Monticello 

Montgomery 

Moorhead 

Mora 

Morris 

Morton 

Mountain Lake 

New Prague 

New Richland 

New Ulm 

Northfield 

North St. Paul 

Norwood 

Olivia 

Ortonville 

Osakis 

Owatonna 

Park Rapids 

Paynesville 

Pelican Rapids 

Perham 

Pine City 

Pine Island 

Pipestone 

Plainview 

Preston 

Princeton 

Red Lake Falls 

Red Wing 

Redwood Falls 

Renville 

Rochester 

Royalton 

Rush City 



Rushford 

St. Charles 

St. Cloud 

St. James 

St. Louis Park 

St. Peter 

Sandstone 

Sauk Center 

Sauk Rapids 

Shakopee 

Sherburn 

Slayton 

Sleepy Eye 

South St. Paul 

Springfield 

Spring Grove 

Spring Valley 

Staples 

Stillwater 

Stephen 

Stewartville 

Thief River Falls 

Tracy 

Two Harbors 

Tyler 

Virginia 

Wabasha 

Wadena 

Walker 

Waseca 

Warren 

Waterville 

Wayzata 

Welcome 

West Concord 

Wheaton 

White Bear 

Will mar 

Windom 

Winona 

Winthrop 

Worthington 

Zumbrota 



III. GRADED SCHOOLS 

1. There is no. source of error from selection. Nearly ninety-five per 
cent of all possible cases were included. 31 

2. There was no reimbursement, because there had been no shortage. 32 

31 See accompanying list. 

^-Eighteenth Report, Superintendent of Public Instruction, 10. 



STATE AID TO PUBLIC SCHOOLS 



15 



3. The same principle regarding attenuation holds here as with rural 
and high school computations. 

4. There were no instructional costs computed for graded school districts. 



Graded School Districts Included 

Ashby Columbia Heights 

Avoca Comfrey 

Audubon Comstock 

Badger Crosby 

Balaton Cyrus 

Barnum Dayton 

Barrett Deephaven 

Battlefield Deer Creek 

Battle Lake Deerwood 

Baudette Delhi 

Beardsley Donaldson 

Beaver Creek Donnelly 

Becker Doran 

Belgrade Dover 

Bellingham Dundas 

Bel view Dunnell 

Bertha Echo 

Big Falls Eden Valley 

Big Lake Edina 

Bingham Lake Edgerton 

Boyd Elgin 

Braham Ellendale 

Brandon Ellsworth 

Brewster Elysian 

Brook Park Erskine 

Brooten Evansville 

Browerville Eyota 

Brownton Fisher 

Bruno Floodwood 

Buffalo Lake Foley 

Burtrum Forest Lake 

Byron Fountain 

Campbell Foxholme 

Canton Franklin 

Carlton Gary 

Carman Geneva 

Carver Gibbon 

Ceylon Glenville 

Champlin Glyndon 

Chokio Goodhue 

Clara City Good Thunder 

Claremont Granada 

Clarissa Grand Marais 

Clear Lake Greenbush 

Clearwater Green Isle 

Clinton Grey Eagle 



in This Study 



Grove City 

Hancock 

Hanley Falls 

Hartland 

Hayfield 

Hendricks 

Hendrum 

Henning 

Hill City 

Hills 

Hofman 

Hokah 

Ivanhoe 

Jasper 

JefTers 

Kellog 

Kimball 

Lakeville 

Lake Wilson 

Lester Prairie 

Lewiston 

Lindstrom 

Lowry 

Lynd 

Madison Lake 

Mahnomen 

Marietta 

Maynard 

Mazeppa 

Meadowlands 

Medford 

Melrose 

Milan 

Montrose 

Moose Lake 

Morgan 

Morristown 

Motley 

Mount Iron 

Murdock 

Nashwauk 

Nemadji 

New Auburn 

New London 

New York Mills 

Nicollet 



16 



RAYMOND ASA KENT 



North Branch 

North Mankato 

Nymore 

Oak Park 

Odessa 

Ogilvie 

Onamia 

Osseo 

Parker's Prairie 

Perley 

Peterson 

Pierz 

Proctor 

Raymond 

Reading 

Richmond 

Robbinsdale 

Rockford 

Roseau 

Rosemount 

Rothsay 

Round Lake 

Rushmore 



Ruthton 

St. Clair 

St. Francis 

St. Hilaire 

St. Joseph 

St. Paul Park 

St. Vincent 

Sacred Heart 

Sanborn 

Saum 

Scanlon 

Sebeka 

Silver Lake 

South Haven 

South Stillwater 

Spooner 

Starbuck 

Stewart 

Swanville 

Taylors Falls 

Tenstrike 

Tintah 

Tower 



Triumph 

Truman 

Twin Valley 

Ulen 

Verndale 

Vernon Center 

Villard 

Wabasso 

Waconia 

Walnut Grove 

Wanda 

Warroad 

Watertown 

Watson 

Waverly 

Westbrook 

Willow River 

Wood Lake 

Woodstock 

Wolverton 

Wrenshall 

Wykoff 



D. Method 

The method of the study, as indicated before, is largely statistical. The 
historical summary of legislation affecting state aid, which precedes the 
statistical, is merely a groundwork for the latter. The former, however, 
describes to us the formal steps by which we have arrived where we are. 
The latter attempts to clarify the present situation. 

The steps taken in the statistical procedure are briefly : 
First. The tabulation and summarization of the basic data collected 
concerning 

a. High schools 

b. Graded schools 

c. Rural schools 

This was done in order that clearly denned working concepts might be 
formed concerning each of these groups of schools and the relation of 
state aid thereto. In the chapters dealing with these respective groups 
of schools, tables of distribution and central tendencies have been com- 
puted in each of the following items: 

a. Number of days attended per pupil per year. 

b. Cost per pupil day of attendance. 

c. State aid per pupil day of attendance. 

d. The proportion that state aid is of the annual maintenance in- 

come for schools. 



STATE AID TO PUBLIC SCHOOLS 17 

e. Local school tax. 

f . Assessed valuation per enrolled pupil. 

g. Length of the school year in months. 

In addition to these items certain other miscellaneous items have been 
computed in these chapters. 

Second. An attempt has been made to discover whether there are any 
important relations between the factors for the separate groups. This is 
done by the use of distribution tables and correlation coefficients. 

Third. The three groups of schools are compared with respect to the 
above eight common factors. Comparisons are made in term's of distri- 
butions and of central tendencies. 

Fourth. The method employed in the treatment of special departments 
is comparable to the one just described. By distributions of salaries and 
other items of cost, certain facts are established concerning the expenditure 
for each of these departments. Comparisons are then made between 
similar items in different departments. 



CHAPTER II 

HISTORICAL SUMMARY OF LEGISLATION AFFECTING 

STATE AID 

The aim in this chapter is to present a brief historical statement of the 
facts concerning state aid to public schools in Minnesota. Territorial 
laws, the state constitution, statutory provisions of the state, and High 
School Board rulings, are considered as they affect each of the three groups 
of schools to which state aid is given. 

Territorial Provisions 

The Organic Act which created the Territory of Minnesota was passed 
in 1849. 1 This act provided that two sections in each township be reserved 
as public school land. 2 A territorial act of the same year provided that 
the county commissioners should levy an annual tax of one-fourth per cent, 
or two and one-half mills, to be apportioned in proportion to the number 
of scholars between four and twenty-one years of age in each district. 3 
Two years later it was voted that if this tax was insufficient the balance 
could be raised by levying upon the taxable property of the districts or 
by a fifty-cent tax on each male inhabitant between twenty-one and fifty- 
five years of age, as might be directed at the school meeting. 4 In 1854 
the apportionment by the county was limited to districts in which school 
had been taught for at least three months during the year preceding. 5 

State Provisions 
i. general aid or current school fund 

In 1858 Minnesota was admitted as a state. 6 The constitution pro- 
vided 7 that the principal of all funds arising from the sale of lands granted 
for educational purposes should "forever be preserved inviolate and un- 
diminished," 8 and that the income from the lease or sale of such lands be 
distributed to the different townships "in proportion to the number of 
scholars in each township, between the ages of five and twenty-one years." 9 

The general laws of 1861 provided that "the principal sum arising from 
all sales of school lands shall remain a perpetual school fund in the state 

1 Minnesota Legislative Manual, 1911, 11. 

2 Ibid., sec. 18, also Authorizing Act, sec. 5. 

3 Laws of Minnesota, 1849 ch. 7, sec. 2. 

4 Ibid., 1851 ch. 29, sec. 16. 

5 Ibid., 1854 ch. 20, sec. 3. A good brisf historical account of Minnesota is given in Young, Civil 
Government of Minnesota ch. 2. 

6 Legislative Manual, 1911, 62. 

7 Ibid., 25 et seq. 

8 Ibid., 45, State Constitution art. 8, sec. 2. 

9 Ibid. 



STATE AID TO PUBLIC SCHOOLS 19 

and shall not be reduced by any charges or costs of officers, by fees or by 
any means whatsoever." 10 

"All moneys received as interest on such permanent fund, or rents on 
leased lands, shall constitute the current school fund of the state, and 
shall be distributed by the state superintendent among the several counties 
of the state in proportion to the number of scholars therein between the 
ages of five and twenty-one years." 11 

Li 1877 the income from the state school funds was directed to be ap- 
portioned among the several counties of the state on the first Mondays of 
March and October each year in proportion to the number of scholars 
between five and twenty-one enrolled in schools which had been in session 
at least three months during the previous year. 12 In 1877 the county tax 
was changed from a two-and-one-half-mills to a one-mill tax which was to 
be returned to the districts in the same proportion as it had been paid. 13 
This provision made the county tax in reality a compulsory part of the 
local support. In 1887 a state one-mill tax was added to the income from 
the general school fund. 14 The money raised by this tax was to be called 
the "State School Tax Fund," and this money, together with the income 
from the general school fund, was to be called the "current school fund." 15 

The same year (1887) the Legislature defined more explicitly the mean- 
ing of the word "scholar" which is used in the constitution for the basis 
of the distribution of the apportionment. Evidently the constitution did 
not mean to make school population the basis for this distribution. The 
Legislature therefore directed that all the current fund should be distributed 
"in proportion to the number of scholars between the ages of five and 
twenty-one years who have been enrolled and have been in attendance 
forty days in the public schools." 16 The same statute provided that all 
schools receiving such funds should be in session not less than five months 
the year preceding the distribution of the aid. 

II. STATE AID TO HIGH SCHOOLS 

In 1878 the "High School Board" was created. 17 It consisted of the 
Superintendent of Public Instruction, the President of the University 
ex officio, and one member appointed by the Governor. 18 The same act 

10 General Laws, 1861 ch. 14, sec. 41. 

» Ibid., sec. 42. 

" Ibid., 1877 sec. 1, sub-ch. 5 of eh. 74. 

13 Ibid., sec. 10, sub-ch. 5 of ch. 74. 

14 Ibid., 1887 sec. 3, sub-ch. 5 of ch. 41. (Amending sec. 84 of ch. 36, General Statutes, 1878.) 
i'°Ibid. 

16 Ibid., sec. 1, ch. 41. (Amending sec. 75 of ch. 36, General Statutes, 1878.) See also discussion in 
Kiehle, Education in Minnesota ch. 2. 
» Ibid., 1878 ch. 92, sec. 1. 
18 Ibid. 



20 RAYMOND ASA KENT 

provided special aid of $400 to each high school 19 meeting the following 
requirements : 20 , 

"First, that there shall be regular and orderly courses of study, embracing all 
the branches prescribed as prerequisite for admission to the collegiate department 
of the University of Minnesota, not lower than the third, or sub-freshman class. 
(Note l.) 21 

"Second, that the said school receiving pecuniary aid under this act, shall at all 
times permit the said board of commissioners, or any of them, to visit and examine 
the classes pursuing the same preparatory courses." (Note 2.) 

Schools receiving the aid were to admit both sexes free of tuition, but 
non-residents might be required to pass examination in all subjects re- 
quired for first grade teacher's certificate except algebra, plane geometry, 
and the theory and practice of teaching. 22 (Note 3.) 

Each school receiving the aid was to be visited by one or more com- 
missioners of the Board at least once annually, or by some competent 
person appointed by the Board and who was to report to them. 23 The 
Board was given power "to establish any necessary and suitable rules 
and regulations relating to examinations, reports, and other proceedings, 
under this act." 24 (Note 4.) A total of $9,000 was appropriated to cover 
all the expenses incurred in the administration of the act and the subsidies 
granted to the high schools for the same purposes. 25 

The next year a total of $20,000 was appropriated. 26 

In 1881 27 the act of 1879 was amended in such a form as to make the 
appropriation an annual one. 28 

At a special session of the Legislature, held the same year (1881), the 
High School Board was reorganized. 29 The act provided that "the High 
School Board shall have full discretionary power to consider and act upon 
applications of schools for state aid, and to prescribe the conditions upon 
which said aid shall be granted, and it shall be its duty to accept and aid 
such schools only as will in its opinion, if aided, efficiently perform the 
service contemplated by law, but not more than three schools shall be 
aided in each county in any one year. Any school once accepted and 
continuing to comply with the law and the regulations of the Board made 
in pursuance thereof, shall be aided not less than three years." 30 The act 

19 General Laws, 1878 ch. 92, sec. 5. 

20 Ibid., sec. 3. - . 

21 Notes referred to are in Appendix A. • . 

22 General Laws, 1878 sec. 2. 

23 Ibid., sec. 4. 
2i Ibid., sec. 7. 

25 Ibid., sec. 5. 

26 Ibid., 1879 ch. 27, sec. 2. 

27 Since 1879 the legislature has met in regular session in only the odd years, see chapter 23 of 
General Laws, 1878. 

28 General Laws, 1881 ch. 144, sec. 5. 

29 General Laws of Special Sessions, 1881 ch. 61. 

30 Ibid., sec. 1. 



STATE AID TO PUBLIC SCHOOLS 21 

fixed the compensation of an "assistant examiner" but provided that "no 
compensation shall be paid to any person receiving salary from any state 
institution." 31 (Notes 5 and 6.) 

In 1883 the maximum number of schools that could be aided in one 
county was increased from three to five, 32 and $3,000 was added to the 
previous annual appropriation, 33 making a total of $23,000. (Note 7.) This 
act stood unchanged for four years. (Notes 8, 9, and 10.) In 1887, 
$2,000 was added to the appropriation, 34 thereby raising the total amount 
available annually to $25,000. In 1893, $7,000 more was added. 35 (Notes 
11, 12, 13, 14.) 

Eighteen ninety-seven saw $10,000 added to annual high school aid, 36 
making a total of $42,000. 

In 1899 the Legislature made more explicit the conditions prerequisite 
for receiving state aid. In order to receive high school aid the school 
must have been maintained at least nine months during the year pre- 
ceding. 37 Students of either sex, residents of any part of the state, must 
be admitted free of any tuition, and non-residents were admitted only 
after having satisfactorily passed examinations in all the common branches 
pursued and completed in the eight grades of the common schools. To 
receive aid, high schools must have regular and orderly courses of study, 
embracing all branches prescribed by the State High School Board, as 
prerequisite for admission to the collegiate department of the State Univer- 
sity. 38 Finally, the school must be subject to the rules and regulations 
prescribed by the High School Board, and be opened to visitation by any 
member of the Board or the High School Inspector at all times. (Note 15.) 

State aid was raised from $400 to $800 for each high school approved 
for aid. 39 (Note 16.) 

To carry into effect the above provisions the Legislature appropriated 
$85,000 annual aid to high schools. 40 Nine thousand five hundred dollars 
of the appropriation for high and graded schools was set apart to defray 
the expenses incurred by the board in inspection and in otherwise adminis- 
tering the act. 

The legislature of 1901 raised the aid for each high school to $1,000, 41 
and appropriated $15,000 for aid and expenses, the same amount ($9,500) 
being similarly reserved as in 1899. 

31 Ibid., sec. 2. 

32 General Laws, 1883 ch. 40, sec. 1. 

33 Ibid., ch. 151, sec. 1. 

3i Ibid., 1887 ch. 256, sec. 1. 

35 Ibid., 1893 ch. 101, sec. 1. 

36 Ibid., 1897 ch. 155, sec. 6. 

" Ibid., 1899 ch. 352, art. 2, sec. 7. 

38 Ibid. 

39 Ibid., sec. 9. 

*° Ibid., 1899 ch. 352, art. 5, sec. 28. 
"Ibid., 1901 ch. 189, sec. 1. 



22 RAYMOND ASA KENT 

m 

In 1903 individual high school aid was raised to $1,500. 42 The ap- 
propriation, with the $9,500 reservation as two and four years previous, 
was $217,000. (Notes 17 to 21.) 

In 1905 the High School Board was given full discretionary powers to 
supervise and to prescribe conditions under which aid should be given to 
high schools, except not more than seven schools in the same county could 
receive such aid, and aid was to be given any schools not less than two 
years in succession if regulations were complied with. 43 

In 1909 individual aid was raised to $1,750 per school. 44 In 1909 and 
1911 special aids to industrial work were granted. (See section V of this 
chapter.) Association aid came at the latter date. (Notes 22 to 31.) 

III. GRADED SCHOOL AID 
Special Aid 

The first aid for graded schools was authorized in 1895, to be adminis- 
tered under the supervision of the High School Board. 45 Each school 
was to receive $200 annually. 46 An appropriation of $10,000 was voted 
for the purposes of the act. 47 (Notes 32 to 35.) 

In 1899, when conditions for receiving high school aid were made more 
explicit by the legislature, the conditions to be met by graded schools to 
be entitled to aid were stated by the legislature to be : 48 

1. A school session of at least nine months. 

2. A school well organized, with at least four departments in charge of a principal 
and teachers having the qualifications stipulated by the High School Board. The 
principal, however, was required to be a graduate of the advanced course of a state 
normal school, or of the academic or pedagogical department of a reputable college 
or state university, or have a first grade certificate or a state professional certificate. 

3. Suitable buildings, library, and other apparatus necessary for doing efficient 
work. 

4. Regular and orderly courses of study taught, and all branches required by 
the State High School Board. 

Another feature of the law of 1899 provided that no graded school 
connected with, or in the same district with, a high school receiving state 
aid, should receive any aid for graded schools. 49 

In 1901 aid was raised to $400 for each school, and the annual appropri- 
ation was made $52,000. 50 (Note 36.) 

42 General Laws, 1903 ch. 184, sec. 1. 

43 Ibid., 1905 ch. 320, sec. 1. 
"Ibid., 1909 ch. 334, sec. 1. 

45 Ibid., 1895 ch. 183, sec. 1. 

46 Ibid., sec. 2. 

47 Ibid., sec. 3. 

« Ibid., 1899 ch. 352, art. 3, sec. 12. 

49 Ibid., sec. 14. 

so See statement regarding $9,500 expense fund. General Laws, 1901 ch. 189, sec. 2, 5. 



STATE AID TO PUBLIC SCHOOLS 23 

In 1903 the aid was raised to $550 per school 51 and the appropriation 
was made $79,000. 52 (Notes 37 to 40.) 

In 1909 individual aid was made $600. 53 

In the same year (1909) $500 was authorized for each graded school 
maintaining a course equivalent to two years of high school work. Such 
aid was to be paid from the appropriation for high schools and graded 
schools in as nearly proportionate amounts as might be. {General Laws, 
1909, ch. 444.) This aid was to be given under the supervision of the 
High School Board. (Notes 41, 42, and 43.) 

Industrial aid of $2,500 per school, granted in 1909, and $1,000 per 
school, granted in 1911, applied also to graded schools. (See section V 
of this chapter.) Association aid came at the latter date. 

IV. RURAL SCHOOL AID (NOTES 44 AND 45.) 
Aid to Semi-graded Schools 

In 1899, twenty-one years after the first act granting special aid to 
high schools, and four years after graded schools had been subsidized, the 
first special aid was granted to country schools. 

These schools that might receive aid were divided into two groups. 
One group were called semi-graded, and were to receive $100 each from the 
state annually. 54 

In order to be eligible for such aid a school was obliged to meet all the 
following requirements : 55 

1. Have an eight months session. 

2. Have two departments under teachers of whom one at least should be a 
graduate of an advanced course of a normal school, or must hold a first grade certifi- 
cate, or a professional certificate. Other teachers were required to hold a second 
grade certificate. 

3. Have suitable buildings, a library, and necessary apparatus. 
• 4. Have a "regular and orderly" course of study. 

5. Comply with the rules of the superintendent of public instruction. 

6. Application for aid was to be made by the board to the county superintendent, 
who was to certify all deserving schools and forward their applications to the state 
superintendent. 56 

An annual appropriation of $11,000 was made for this aid. 57 
In 1901 the aid was raised to $200 per school 58 and the annual appropria- 
tion was made $25,000. 59 

61 General Laws, 1903 ch. 366, sec. 1. 

nibid., 1913 ch. 184, sec. 2. 

63 Ibid., 1909 ch. 334, sec. 1. 

" Ibid . 

66 Ibid., sec. 17. 

Mlbid., sec. 18. 

«» Ibid., sec. 28, art. 5. 

«« Ibid., 1901 ch. 189, sec. 3. 

'» Ibid., sec. 5. 



24 RAYMOND ASA KENT 

In 1903 the aid was placed at $250 per school, 60 and the annual appro- 
priation was raised to $67,000. 61 

In 1909 the aid reached $300 per school. 62 

In 1911 association 63 aid came. This is discussed in connection with 
industrial aid. (See section V of this chapter.) 

By chapter 207 of the Laws of 1911 the Legislature allowed consolida- 
tion aid. It established three classes of schools to be formed by con- 
solidation. Those of classes A and B were to have an area of at least 
eighteen sections. Schools of Class C were to be formed with twelve 
sections. There was to be possible consolidation including an area of 
less than twelve sections, but in such case the state aid provided would 
not apply. 

Each consolidated school was to be in session for eight months and was 
to employ a principal who had special training and preparation for direct- 
ing the teaching of agriculture and other industrial lines. A school of 
Class A was to provide a building of four rooms or departments and was 
to receive state aid of $1,500. A school of Class B was to provide a building 
of three rooms and was to receive aid of $1,000. One of Class C was to 
be a two-department school and was to receive $750 aid. Additional aid 
for the erection of a school building for either class to the amount of twenty- 
five per cent of the cost and not exceeding $1,500 was also provided. 

The same year the Legislature provided that "the aggregate attendance 
in days by children in either class of rural schools shall not be made a rule 
for granting such aid." 64 

Aid to One-Room Schools 

The second class of country schools aided in 1899 were called "rural." 
They were to receive $75 each per year, 65 and had the same conditions 
imposed upon them as semi-graded schools had, except that two depart- 
ments were not required, and the teacher did not need to hold other than 
a first grade or professional certificate. 66 

Forty thousand dollars annual aid was their appropriation. 67 

In 1901 the aid was made $100 for each such school 68 and the appro- 
priation for such aid, $60,000. 69 

In 1903 aid was made $125 per school, 70 and the appropriation, $100,000. 71 

60 General Laws, 1903 ch. 366, sec. 2. 
« Ibid., 1903 ch. 184, sec. 2. 
« 2 Ibid., 1909 ch. 334, sec. 1. 
63 Ibid., 1911 ch. 91, sec. 1. 
M Ibid., ch. 60, sec. 1. 

65 Ibid., 1399 ch. 352, art. 5, sec. 25. 

66 Ibid., sees. 23, 24. 
6? Ibid., sec. 23. 

68 ibid., 1901 ch. 1S9, sec. 4. 
63 Ibid., sec. 5. 
'» Ibid., 1903 ch. 366, sec. 3. 
« Ibid., 1903 ch. 184, sec. 2. 



STATE AID TO PUBLIC SCHOOLS 25 

In 1909 the aid was set at $150 for a rural school fulfilling the conditions 
above enumerated, 72 and $100 was to be given each school meeting all the 
requirements except that the teacher held a second grade certificate. 73 

In 1911 a reclassification of rural schools was made. They were 
divided as follows: 74 

Class A — Schools having sessions of eight months and having teachers with 

first grade certificates 
Class B — Schools having sessions of eight months and having teachers with 

second grade certificates 
Class C — Schools having sessions of seven months and having teachers with 

second grade certificates 

The aid to these schools was set at : 75 

Not more than $150 each for schools in Class A 
Not more than $100 each for schools in Class B 
Not more than $75 each for schools in Class C 

Association aid, explained later, applied to any of these three groups 
of schools, as did also the proviso excluding "aggregate attendance" as 
"a rule for granting such aid." 

Finally, there was, in 1911, provided a form of aid that can not be 
called association, consolidation, or transportation aid. Chapter 167 
authorized the school board in any district to provide for the instruction 
of its pupils in an adjoining district by discontinuing its own schools, or 
for any grade or department in its own schools, and to provide free trans- 
portation for the pupils to another school, the school in the district so 
closed to receive state aid of $150, as provided for schools of Class A under 
Chapter 60. 

V. INDUSTRIAL AID 

To Separate Schools 

In 1905, the same year that special aid was first voted to graded schools, 
the Legislature provided for the establishment of country schools of agri- 
culture and domestic economy. 76 The first two schools established and 
approved by the state superintendent and the dean of the College of 
Agriculture of the State University were to receive such aid as might be 
prescribed by law or might be appropriated. 77 

To Separate Departments 

There were no country schools established under the act of 1905. In 
1909 another plan was passed by the Legislature. It was to be operated 

» Ibid., 1909 ch. 334, sec. 1. 

" Ibid. 

i* Ibid., 1911 ch. 60, sec. 1. 

« Ibid. 

« Ibid., 1905 ch. 314, sees. 1-9. 

77 Ibid., sec. 10. 



26 RAYMOND ASA KENT 

in direct connection with schools already existing. 78 High, graded, and 
consolidated schools were possible beneficiaries. 79 Each school was to 
maintain instruction in agriculture, manual training, and home economics. 80 
Each school, so aided, was to maintain a demonstration tract of not less 
than five acres, suitably located. 81 Instruction was to be free to all resi- 
dents of the state. 82 The course of study was to be made out in full and 
was to cover all the details of agriculture. 83 The annual aid might equal 
two thirds of the cost of the department but was not to exceed $2,500 per 
school. 84 Not more than ten schools were to be so aided the first year, 
nor more than ten added to the list every two years thereafter, 85 and not 
more than one school in any county could be added in any two years. 86 
Twenty-five thousand dollars was the sum appropriated for each of the 
next two years. 87 (Notes 46 and 48.) 

The next Legislature (1911) provided aid of $1,000 for every high or 
graded school that would maintain suitable courses in agriculture and in 
either home economics, or manual training. 88 This aid was to be taken 
from the amounts appropriated for general aid to high and graded schools. 89 
(Notes 47 and 48.) 

Association aid was granted first by Chapter 82 of the Laws of 1911. 
Chapter 247 of the Laws of 1909, had, in connection with providing for 
special industrial departments and special aid for the same, made associa- 
tion permissive. Association is defined in terms of the law as follows: 90 

Sec. 6. For the purpose of extending the teaching of agriculture, home eco- 
nomics, and manual training to pupils in rural schools, and for the purpose of extend- 
ing the influence and supervision of state high or graded schools over rural schools, 
one or more rural schools may become associated with any state high or graded school 
maintaining a department of agriculture, whether or not such high or graded school 
has been designated by the state high school board to receive aid under the provisions 
of this act. Any such state high or graded school shall for the purposes of this act 
be known as a central school. 

Sec. 7. To effect this, proceedings shall be had by petition and election on the 
part of the rural school, or schools as now provided by law for the consolidation of 
school districts, and ballots to vote upon this question shall read: 

To associate with District No for the teaching of agriculture and 

manual training Yes No The district or districts cast- 
's General Laws, 1909 ch. 247. 
» 9 Ibid., sec. 1. 
8° Ibid., sec. 2. 
si Ibid. 

82 Ibid., sec. 3. 

83 Ibid. 

Mlbid., sec. 4. 
85 Ibid. 

8« Ibid., sec. 5. 

8' Ibid. 

*»Ibid., 1911 ch. 91, sec. 1. 

s» Ibid. 

•» Ibid., 1909. 



STATE AID TO PUBLIC SCHOOLS 27 

ing a majority vote upon the approval of such association by a majority of the 
school board of the central school become so associated and the rural school or 
schools together with the central school, shall thereafter be known as the as- 
sociated schools of ... . for the teaching of agriculture and manual training. 
Sec. 8. The members of the various school boards of the associated schools 
shall meet on the third Monday in June of each year at the central school building 
to act as a board of review and to examine into the amount of money expended in 
each department of work herein provided for and to determine the amount of tax 
which shall be levied on the associated rural school district or districts for the purpose 
of maintaining courses of instruction as provided in section 2 of this act, and for the 
purpose of extending such instruction to the pupils of the associated rural schools. 
Provided, however, that the tax shall not be less than one mill or more than four 
mills in the various rural school districts in the association and such tax shall be in 
addition to other general and special school taxes in such rural districts. The amount 
of such tax shall be certified by the chairman of the meeting to the county auditor 
to be by him levied against the property in the respective districts and when collected 
by the county treasurer, such tax shall be paid to the treasurer of the central school 
who shall furnish the board of review full and detailed statement of all money received 
and expended. 

Sec. 9. The school board of each rural school district associated with a central 
school under the provisions of this act shall designate one of its members by vote to 
act with the school board of the central school in carrying out the provisions of this 
act as to the teaching of agriculture, domestic economy, and manual training in such 
schools and in all matters pertaining to such instruction, both in the central school 
and in the associated rural schools, such member shall have equal power with the 
member of the school board of the central school. 

Sec. 10. The principal or superintendent of the central school shall have and 
exercise the same authority and supervision over the rural schools as over the central 
school. He shall prepare for the associated rural schools a suitable course of study 
embodying training and instruction in agriculture and such subjects as are related 
to farm life and can be taught successfully in rural schools. 

Sec. 11. The relationship and obligations between the associated rural school or 
schools and the central school may be terminated at any annual school meeting by 
a majority vote of the associated districts, but not until the central school has had at 
least one year's notice of the intention to vote on the question. 

By Chapter 82 of the Laws of 1911, the above was reenacted with the 
new provisions that $150 was to be paid to the central school district and 
$50 to the rural school district for each rural district associating with a 
central district. Rural districts associating were also permitted to levy 
a tax for an industrial building in connection with the central district. 
The minimum tax levy to be imposed on the associated districts was raised 
to two mills, and the maximum limit of four mills was removed. Per- 
mission was granted also for a tract of land for experimental purposes 
to be acquired in one or more of the associated districts. 

In interpreting this provision the state department makes the follow- 
ing statement: "When a school is closed, as provided under chapter 167, 
and its pupils are transported to another school, the district of the closed 
school may receive state aid of $150, if the pupils are sent to a school that 



28 



RAYMOND ASA KENT 



earns state aid under Class A, rural schools, or to a semi-graded, graded, 
or high school. The condition of the closed building is not a factor in 
earning the aid. The district must, however, provide proper transporta- 
tion for all its pupils to attend another school." 91 

VI. RULES IN FORCE. 1912-13 

The complete rulings of the High School Board relating to state aid 
which were in force during the year covered by this study are given in 
Appendix A in form similar to that in which they were published by the 
State Department of Education. 92 



TABLE IV. OUTLINE OF STATE AID DEVELOPMENT 
Part I. Current School Fund 93 



Year 


Sources 


Basis of Distribution 


1858 


Annual income from State Public 
School Funds 








1877 




Scholars, 5 to 21 years of age, attending in 
schools having at least 3 months session during 
the year 




1887 


Income from state public school 
funds and income from a state one- 
mill tax 






40 days, in schools having at least 5 months 
session during the year 



Part II. Special State Aid to Public Schools 9 





Schools and Amounts of Annual Aid 


Year 


High 


Graded 


Rural 




"Semi-graded" 


"Rural" 


1878 


$ 400 

800 
1,000 
1,500 

1,750 
2,000 


$200 

400 
550 

600 
750 


$100 
200 
250 

300 




1895 




1899 


$ 75 


1901 


100 


1903 


125 








Class A 


Class B 




1909 


$150 


$100 










Class A 


Class B 


Class C 


1911 


$150 


$100 


$75 


1913 









91 Department of Public Instruction, St. Paul, Circular no. 7. 1911. 

92 State of Minnesota, Department of Education Bulletin no. 45. May, 1913. 

93 For what this has amounted to per pupil as actually distributed, see Appendix C, table 4. 

94 A resume of only regular lines of work. No aid for departmental work of any kind or for associa- 
tion or consolidation is included. 



STATE AID TO PUBLIC SCHOOLS 
Part III. Aid to High vSchools 



29 





Annual Aid for Different Purposes 


Year 


High School 


Industrial 


Association 


Consolidation 


Remarks 


1878.. . 


$ 400 










1881. . . 










Limited to 3 in a county 


1883.. . 










Limited to 5 in a county 


1899. . . 


800 










1901. . . 


1,000 










1903... 


1,500 










1905... 










Limited to 7 in a county 9 * 


1909... 


1,750 


$2,500 








1911... 




2,500 or 
1,000 


$150 per each 
associated dist. 


$1,500 




1913. . . 


2,000 


2,500 or 
1,800 









Aid for teacher training departments is in addition to all the above. 

Part IV. Aid to Graded Schools 







Annual Aid for Different 


Purposes 




Year 


Graded School 


Industrial 


Association 


Consolidation 


H. S. Dept. 


1895 


$200 










1901 


400 










1903 


550 










1909 


600 


$2,500 






$500 


1911 




2,500 or 
1,000 


$150 for each as- 
sociated district 


$1,000 




1913 


750 


2,500 or 
1,800 









95 According to the general statutes of both 1905 and 1913 the limit as to number of high schools to 
receive aid in any one county is seven, although the general laws of 1909 give it as nine. The place where 
the maximum number was changed from seven to nine can not be found. The general statutes are sup- 
posed to be final by court practice. 



30 



RAYMOND ASA KENT 



Part V. Rural School Aid 

1. "SEMI-GRADED SCHOOLS" 



Year 


Annual 


Aid for Different Purposes 




Semi-graded Schools 


Consolidation 


Association 


1899 


$100 
200 
250 
300 






1901 






1903 






1909 


$750 




1911 










ated district 



2. "RURAL SCHOOLS" 





Annual Aid for Special Purposes 


Year 


Rural Schools 


1899 


$ 75 


1901 


100 


1903 


125 






CT( 


Class A 


Class B 




1905 


$125 
150 


$ 50 
100 




1909 










Class A 


Class B 


Class C 


1911 


$150 


$100 


$75 







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CHAPTER III 
SPECIAL AID TO HIGH SCHOOLS 

As was explained in Chapter II, a specified amount of state aid is given 
to districts maintaining high schools, for each such school maintained. 
The districts receiving this aid receive no special aid for that part of the 
schools below the high school. The money from the state is paid to the 
district, and in general practice, turned in with the local general school 
fund. There is no separate account kept of high school costs except by 
a very few of the larger cities or in some items by other districts. This 
method of bookkeeping compels us at this point to consider such general 
items as tax expense and support, for the whole district instead of for the 
high school department alone. In another chapter 1 certain items are 
considered for the high school alone, but in this part of the discussion, 
unless otherwise distinctly specified, "high school district" refers to the 
whole district or system of schools in the district and not to that division 
of the system — the high school proper. The whole system includes the 
high school and the grades. In an associated district it may include, 
besides the central system with the two parts above named, one or more 
one-room schools. The number of districts of the last kind, however, is 
very small. 

We realize that this method is not so desirable as it might be. On the 
other hand, when one stops to consider that the aid is given to the district 
as the unit, that the common practice is for the district to lump this con- 
tribution with all other forms of support in one general source of main- 
tenance, it is clear that the method above indicated, unfortunate and inac- 
curate as it may be, is the method of procedure really applicable to study- 
ing the conditions as they actually exist. 

The three largest cities — Duluth, St. Paul, Minneapolis — are not in- 
cluded in this report. They do not represent conditions typical of the 
state as a whole. These are the only cities of the state that have more 
than one high school each. 2 Furthermore, in enrollment, in the total 
number of instructors, in the proportion of the school work that is indus- 
trial in character, and in the size of the corporate units in which the high 
schools of the state are located, the high schools of these three cities are 
in a group quite separate from the rest of the state. In 1914-15 there were 
210 high schools in Minnesota outside of Duluth. St. Paul, and Minneapolis. 
These were located in villages and cities whose population ranged, accord- 
ing to the United States Census Report of 1910, as shown in Table V. 

1 Chapter 7, Aid to Industrial Departments. 

2 Duluth has 2; St. Paul, 4; Minneapolis, 5. See Eighteenth Annual Report of the Inspector of Slate 
High Schools, 19 et seq. 



STATE AID TO PUBLIC SCHOOLS 



33 



TABLE V 
Size of Corporate Units in Which Minnesota High Schools Are Located' 



5 high 


schools 


are 


in 


corporations o: 


under 


500 people 


71 " 


« 


u 


tt 


a it 


between 


500 an 


d 1,000 people 


43 " 


" 


a 


tt 


a a 


a 


1,000 ' 


( 1,500 ' 




30 " 


« 


n 


tt 


a tt 


tt 


1,500 ' 


( 2,000 ' 




14 " 


c< 


<< 


tt 


it a 


n 


2,000 ' 


2,500 ' 




6 " 


<( 


a 


tt 


ti a 


tt 


2,500 ' 


3,000 ' 




5 " 


M 


a 


" 


tt a 


tt 


3,000 ' 


3,500 ' 




4 " 


tt 


a 


tt 


it a 


tt 


3,500 ' 


4,000 ' 




2 " 


tt 


a 


" 


it a 


" 


4,000 ' 


4,500 ' 




3 " 


a 


a 


" 


tt tt 


" 


4,500 ' 


5,000 ' 




1 " 


" 


a 


tt 


tt a 


<( 


5,000 ' 


5,500 ' 




2 " 


« 


a 


tt 


it tt 


it 


5,500 < 


6,000 ' 




2 " 


a 


tt 


tt 


it a 


a 


6,000 ' 


6,500 ' 




2 " 


<< 


tt 


" 


tt tt 


it 


6,500 ' 


7,000 ' 




1 " 


u 


a 


tt 


a it 


ti 


7,000 ' 


7,500 ' 




3 " 


" 


it 


tt 


a ti 


a 


7,500 ' 


8,000 ' 




2 " 


« 


it 


tt 


a a 


" 


8,000 * 


8,500 ' 




2 " 


u 


" 


" 


a tt 


" 


8,500 ' 


9,000 ' 




" 


<< 


tt 


<< 


ft a 


it 


9,000 ' 


9,500 ' 




3 " 


<< 


it 


<< 


it if 


tt 


9,500 ' 


10,000 ' 




1 " 


« 


a 


" 


it ti 


" 


10,000 ' 


10,500 ' 




1 " 


« 


a 


« 


tt a 


tt 


18,000 ' 


18,500 " 



The typical village or city of the state that supports a high school has 
a population of less than 1,300 people. One half of the high schools are 
in places containing not over 1,550 people, while 163 or more than three 
fourths of all the high schools of the state outside of the three largest 
cities, are in territory that by both the federal authorities and by sociol- 
ogists is classed as distinctly rural. 4 In attempting to determine and 
interpret conditions for the state at large the omission of the three largest 
cities seems, therefore, amply justified. 5 

The median number of days of attendance per pupil per year in 197 
high school districts is 147.44. In the middle fifty per cent of these 
districts, the attendance per pupil is between 142.4 days and 154.9 days. 6 

In ninety-nine per cent of the districts the average attendance is 120 
days, or more. This is three times the length of attendance necessary to 
receive apportionment aid. It is two thirds of a nine-months year. In 
over ninety per cent of the districts the average attendance is 135 days or 
more, which is at least three fourths of the standard school year. 



8 See Thirteenth Census of the United States, 1910 2:985-8. 

* Gillette, Constructive Rural Sociology ch. 2. 

6 The above data on population were collected for the high schools on the state list in 1914-15. See 
Twenty-second Report of State High School Inspector, 6-10. 

6 In this and in succeeding distributions, the central tendency is obtained by making the basic unit 
the district, and not the pupil. Considered from one view-point this is not the best method. It does not 
give an idea that is nearly so correct for the attendance of all the pupils as would be obtained if the 
computations were made merely on the pupil basis, irrespective of district records. This study, however, 
is an investigation of certain conditions by districts as units. A compilation of attendance merely by 
pupils would make impossible comparison of this and other items by districts. Such comparisons make 
up the bulk of this study. 



34 



RAYMOND ASA KENT 



TABLE VI 

Attendance per Pupil per Year in 

High School Districts' 



Number of 


Per Cent of 


Attendance — 


Districts 


All Districts 


Days 


1 


.5 


101 to 103.9 


1 


.5 


110 to 112.9 


1 


.5 


120 to 122.9 


6 


3.04 


126 to 128.9 


3 


1.52 


129 to 131.9 


6 


3.04 


132 to 134.9 


7 


3.55 


135 to 137.9 


IS 


7.60 


138 to 140.9 


17 


8.57 


141 to 143.9 


35 


17.76 


144 to 146.9 


36 


18.27 


147 to 149.9 


20 


10.15 


150 to 152.9 


21 


10.65 


153 to 155.9 


12 


6.09 


156 to 158.9 


11 


5.58 


159 to 161.9 


1 


.5 


162 to 164.9 


3 


1.52 


165 to 170.9 


1 


.5 


171 to 173.9 



TABLE VII 

Cost per Day of Attendance per Pupil in 

High School Districts 



Number of 


Per Cent of 


Cost 


per Day — 


Districts 


All Districts 




Cents 


1 


.5 


12 to 


13.9 


5 


2.54 


14 


it 


15.9 


5 


2.54 


16 


tt 


17.9 


18 


9.13 


18 


It 


19.9 


25 


12.69 


20 


tt 


21.9 


24 


12.18 


22 


It 


23.9 


21 


10.65 


24 


It 


25.9 


26 


13.19 


26 


It 


27.9 


22 


11.16 


28 


it 


29.9 


14 


7.10 


30 


a 


31.9 


11 


5.58 


32 


it 


33.9 


7 


3.55 


34 


it 


35.9 


1 


.5 


36 


it 


39.9 


2 


1.01 


40 


ti 


43.9 


1 


.5 


44 


tt 


45.9 


1 


.5 


46 


tt 


47.9 


1 


.5 


48 


it 


51.9 


1 


.5 


52 


tt 


57.9 


1 


.5 


58 


tt 


59.9 


1 


.5 


60 


it 


61.9 


1 


.5 


62 


tt 


63.9 


1 


.5 


64 


a 


65.9 


3 


1.52 


68 


tt 


69.9 


2 


1.01 


94 


tt 


95.9 


1 


.5 


126 


tt 


127.9 


1 


.5 


136 


tt 


137.9 



7 It should be remembered that data collected made it possible to use 197 high school districts in the 
basic computations. These districts are the ones covered by the following tables of this chapter. 



STATE AID TO PUBLIC SCHOOLS 



35 



The median cost per day of attendance per pupil is 25 . 66 cents. , For 
the middle one half of the districts this cost is between 21.5 cents and 
29.87 cents. Although this unit cost reaches $1.36 in the case" of one 
district, over ninety per cent of the districts have a corresponding cost of 
not more than 35 cents. About fifteen per cent have a unit cost of less 
than 20 cents. Thus seventy-five per cent of the districts havea unit 
cost of between 20 and 35 cents per day of attendance. 

TABLE VIII 
Aid per Day of Attendance 



Number of 


Per Cent of 


Aid 


PER 


Day— 


Districts 


All Districts 




Cents 


6 


3.0 


3 to 


3.9 


13 


6.6 


4 


tt 


4.9 


23 


11.7 


5 


tt 


5.9 


33 


16.8 


6 


it 


6.9 


31 


15.7 


7 


tt 


7.9 


28 


14.2 


8 


tt 


8.9 


15 


7.6 


9 


tt 


9.9 


22 


11.2 


10 


it 


10.9 


10 


5.1 


11 


tt 


11.9 


5 


2.5 


12 


tt 


12.9 


3 


1.5 


13 


tt 


13.9 


2 


1.0 


14 


it 


14.9 


1 


.5 


15 


tt 


15.9 


3 


1.5 


16 


tt 


16.9 





.0 


17 


it 


17.9 





.0 


18 


it 


18.9 


1 


.5 


19 


it 


19.9 


1 


.5 


20 


tt 


20.9 



TABLE IX 
Local School Tax in Mills 



Number of 


Per Cent of 


Local School 


Districts 


All Districts 


. Tax— 


Mills 


6 


3.04 


2 to 


2.9 


19 


7.64 


3 


" 


3.9 


38 


19.38 


4 


it 


4.9 


41 


20.81 


5 


tt 


5.9 


40 


20.30 


6 


a 


6.9 


26 


13.19 


7 


a 


7.9 


7 


3.55 


8 


tt 


8.9 


4 


2.03 


9 


tt 


9.9 


7 


3.55 


10 


it 


10.9 


3 


1.52 


11 


tt 


11.9 


4 


2.03 


12 


it 


12.9 


1 


.5 


17 


a 


17.9 


1 


.5 


18 


a 


18.9 



36 RAYMOND ASA KENT 

The median aid per day of attendance is 7.5 cents. There are some 
scattered cases of very high aid per day. In the middle half of the districts 
the aid ranges from 6 . 1 cents to 9 . 8 cents per day. Although the aid is 
as much as 20 cents per day in one district, it is 12 cents or more in only 
five and one-half per cent of all the schools. It is under 5 cents in less than 
ten per cent of all. In about eighty-five per cent of the schools, then, the 
aid ranges from 5 to 13 cents per pupil per day of attendance. 

The median special tax that these districts levy for school maintenance, 
computed on their total taxable valuation, is 6.26 mills. The middle 
half of the districts levy taxes between 5 . 03 mills and 7.81 mills. Although 
one district has a tax of more than 17.9 mills, only eight per cent have 
taxes of 10 mills or more, while the taxes of eleven per cent are less than 
4 mills. Thus about eighty-eight per cent of all districts are taxed between 
4 and 10 mills on the basis of their true valuation. 

Comparisons of Local Special School Tax Levies 

The report of the Minnesota Tax Commission for 1912 contains a care- 
ful study of the ratio between the taxable and true valuation of property 
throughout the state. 8 This report gives the ratio of taxable to true valua- 
tion for each separate county of the state. The median of this ratio is 
32.49 per cent. 

In attempting a comparison of local special school taxes levied on the 
assessed valuation of the district, and any other item based upon or in any 
way dependent upon these items, one would be entirely in error to compare 
assessed valuations as they are stated, since the ratio of taxable to true 
valuation in the several counties of Minnesota ranges, as the above cited 
table shows, from 22.55 per cent to 43.35 per cent. The plan adopted 
in this study, therefore, was to reduce all special local school mill tax 
levies to the basis of the tax rate on the true valuation of the same property, 
the true valuation being computed by the use of the ratio of taxable to 
true valuation for the county in which such districts are located. It may 
be objected that rural real estate is not assessed the same as urban. This, 
however, can not constitute real criticism of the method at this point. 
Facts brought out in a later part of the study show clearly that the amount 
of mill tax voted for school purposes is considerably lower among rural 
districts than among districts maintaining graded or high schools, but 
that the assessed valuation to be drawn on for every pupil enrolled in school 
is considerably higher in the open country districts than in villages and 
cities. 9 If absolutely accurate figures were obtainable, there is no doubt 
that figures for the true valuation of rural real estate would be slightly 

s Table 1, pp. 430, 431. 

• Chapter 6, Summary. 



STATE AID TO PUBLIC SCHOOLS 



37 



raised. The figures for the true valuation of urban real estate on the 
other hand, might be slightly lowered. Change in either place indicated 
would affect results only in an increase in the same direction which the 
present indications show. All the facts we have on hand tend to prove 
that if more accurate information in this particular respect were avail- 
able, comparisons in items of financial ability and taxable effort and re- 
sources between rural and graded and high schools would be even more 
striking than the obtained comparisons show. 

The actual ratios of the taxable to true valuation in the fourteen counties 
used for rural school computations are : 10 



County 

Carlton . . , 
Dodge 
Douglas. . 
Fillmore. . 
Hubbard . 

Isanti 

Kittson. . 



Ratio of Taxable to 
True Valuation 
Per Cent 
30.09 
30.59 
25.14 
26.80 
28.56 
30.53 
25.36 



Ratio of Taxable to 
County True Valuation 

Per Cent 

Meeker 26.57 

Norman 30 . 64 

Pipestone 25.87 

St. Louis 36.90 

Scott 22.77 

Watonwan 27.73 

Wilkin 27.03 



In the above table and in all others in this study where the amount 
of local school tax enters, tax on real valuation as above explained will be 
meant unless specific statement is made to the contrary. 

TABLE X 

The Per Cent That State Aid Is of the Annual 
Maintenance Income in High School Districts 



Number of 


Per Cent of 


State 


Aid — 




Districts 


All Districts 


Per 


Cent 




5 


2.54 


3 


to 


5.9 




4 


2.03 


.6 


« 


8.9 




3 


1.52 


9 


« 


11.9 




2 


1.01 


12 


« 


14.9 




5 


2.54 


15 


a 


17.9 




9 


4.54 


18 


u 


20.9 




14 


7.10 


21 


« 


23.9 




16 


8.07 


24 


K 


26.9 




18 


9.13 


27 


<( 


29.9 




30 


15.22 


30 


tt 


32.9 




24 


12.18 


33 


it 


35.9 




28 


14.21 


36 


tt 


38.9 




13 


6.59 


39 


a 


41.9 




11 


5.58 


42 


it 


44.9 




5 


2.54 


45 


tt 


47.9 




5 


2.54 


4S 


it 


50.9 




3 


1.52 


51 


tt 


56.9 




1 


.5 


57 


a 


59.9 




1 


.5 


60 


tt 


62.9 





10 Report of the Minnesota Tax Commission, 1912 table 1, pp. 430, 431. 



38 



RAYMOND ASA KENT 



The median part that the total state aid is of the whole maintenance 
income of the districts is 32.15 percent. The middle half of the districts 
receive from the state between 25.26 per cent and 37.76 per cent of their 
maintenance. 

One district receives from the state as much as 60 per cent of its main- 
tenance, while between eight and nine per cent of all the schools receive 
less than 15 per cent. On the other hand, more than forty-six per cent 
receive in aid over one third of their annual maintenance, and about eighty 
per cent receive more than one fourth. 



TABLE XI 
Assessed Valuation per Enrolled Pupil 



Number of 


Per Cent of 


Assessed Valuation 


Districts 


All Districts 


PER 


Pupil 


2 


.96 


$ 250 to $ 499 


19 


9.17 


500 


" 


749 


41 


19.32 


750 


a 


999 


55 


26.56 


1,000 


tt 


1,249 


29 


15.00 


1,250 


a 


1,499 


21 


10.14 


1,500 


u 


1,749 


9 


4.34 


1,750 


tt 


1,999 


6 


2.89 


2,000 


a 


2,249 


6 


2.89 


2,250 


it 


2,499 


2 


.96 


2,500 


it 


2,749 


1 


.48 


2,750 


(i 


2,999 


2 


.96 


3,000 


(i 


3,499 




.48 


3,500 


it 


3,999 




.48 


4,000 


it 


4,139 




.48 


4,250 


it 


4,499 




.48 


4,500 


it 


5,749 




.48 


5,750 


it 


7,999 




.48 


8,000 


tt 


8,499 




.48 


8,500 


a 


8,749 




.48 


8,750 


a 


10,499 




.48 


10,500 


tt 


16,749 




.48 


16,750 


it 


18,249 




.48 


18,250 


it 


18,749 




.48 


18,750 


it 


23,999 




.48 


23,000 


a 


53,749 




.48 


53,750 


it 


53,799 



The median assessed valuation per enrolled pupil is $1,186. In the 
middle fifty per cent of these districts such valuation is between $937 and 
$1,610 per pupil. 

The median and the mode fall in the same group. The distribution 
is extremely skewed toward low valuation. This is what we might expect. 
The highest valuations occur in those districts located in the northern 
part of the state. Several of the districts in this portion are almost or 
altogether iron mine territory. 

Over eighty per cent of the districts have a valuation per pupil of less 
than $1,750. The lowest fifty districts have a valuation between $250 



STATE AID TO PUBLIC SCHOOLS 39 

and $677 per enrolled pupil. The highest fifty range from $1,631 to 
$53,750 per pupil. The valuations per pupil in the five richest districts 
are, respectively: 

$16,964 

$18,390 

$18,790 

$23,093 

$53,752 
In over ninety-five per cent of the districts a fifteen-mill tax 11 levied 
on the assessed valuation would bring between $7.50 and $37.50 per 
pupil. In over nine per cent of the districts the same levy would bring 
between $38.00 and $800.00 per pupil. 12 

It should be remembered that all the figures discussed in connection 
with the above table are on the basis of assessed and not real valuation. 

Effect of Special State Aid on Enrollment in High School 

It is possible that one effect of special state aid to high schools has 
been to increase attendance from outside the district itself, to attract 
children from adjoining districts. The presence of a high school in a well- 
settled community means that it will attract from nearby districts a part 
of its enrollment. This fact is shown in a later part of the study. 13 In so 
far as special aid has furthered the establishment of high school depart- 
ments, it has doubtless been a positive factor in increasing the enrollment 
of pupils from outside the district. 

But aid to individual high schools increased from a maximum of $1,500 
plus the apportionment in 1903, 14 to a maximum possibility of over $5,000 
in addition to apportionment in 1914-15. 15 Later we shall discover that 
the per cent of outside enrollment in all the high schools of the state was 
23.3 per cent in 1903 and 23.4 per cent in 1915. 

The question more to the point is whether the increase in special state 
aid per school increased the enrollment of pupils from outside the district 
in similar proportion. An examination of the per cent of outside enroll- 
ment in the high schools during the past decade compels us to give a neg- 
ative answer. 

Some may object that the above presentation omits one very important 
item, that of consolidation; that the pupils from the outlying territory in 
consolidated districts are as truly "outside" pupils in the sense the above 

11 A rough central measure of special school levies among high school districts of the state. 
12 Cf. Cubberley, School Funds and Their Apportionment chs. 3 and 4. 
« Chapter 7, table 76. 
M Chapter 2. 

16 Eighteenth Annual Report of Inspector of State High Schools, 4. No decrease was made after 1911, 
but an increase to one group of industrial schools and to teacher training departments. See Chapter 2. 



40 



RAYMOND ASA KENT 



are considered as though they were not within the formal confines of the 
enlarged district. It should be remembered that districts receive special 
annual aid for consolidation in addition to aid received because they support 
accredited high schools. It is quite erroneous to confuse these two forms 
of aid or the effects of them. 

There is this much to be considered however. Every high school 
receives some of its pupils from outside its district. By consolidation a 
district takes in as its own members a number of pupils previously enrolled 
as outsiders. The number of such pupils included will depend partly upon 
the amount of rural territory included in the consolidation. In any 
consolidated district then, the number of outsiders enrolled will be nomi- 
nally less than before the consolidation. The number of consolidated 
schools has increased markedly during the past five years. This situation 
makes the per cent of outside enrollment seem somewhat less for this 
period than it actually has been. 

High School Enrollment and High School Expense 

Is there any relation between the part of a district's enrollment that 
is^in the high school and the part of the district's money spent in the high 
school? If there is a central tendency for, say, one fourth of all pupils 
in high school districts to be found in the high school department, is there 
a corresponding tendency for one fourth, one third, or any other fraction 
of expenditure to go to the high school department? 

|/|§ For eighty-five districts receiving no aid for industrial work, division 
of ^school enrollment and cost between the grades and the high school is 
as shown in the two following tables: 



TABLE XII 

Per Cent of a District's Total Annual Enrollment 
That Is in the High School 









High 


School 


Number of 


Per Cent 


OF 


Enrollment — 


Districts 


All Districts 


Per Cent 


6 


7.07 




3 


to 


7.9 


6 


7.07 




8 


« 


12.9 


12 


14.12 




13 


« 


17.9 


27 


31.75 




18 


a 


22.9 


22 


25.87 




23 


it 


27.9 


10 


11.76 




28 


it 


32.9 


I ! 


1.18 




33 


it 


37.9 





.0 




38 


tt 


42.9 





.0 




43 


a 


47.9 


1 


1.18 




48 


it 


52.9 





.0 




53 


it 


57.9 





.0 




58 


tt 


62.9 



STATE AID TO PUBLIC SCHOOLS 



41 



TABLE XIII 

Per Cent of a District's Total Annual Cost That Is 
Devoted to the High School 



Number of 


Per Cent of 


High School Cost — 


Districts 


All Districts 


Pe 


R 


Cent 


4 


4.72 


3 to 


7.9 


3 


3.53 


8 


a 


12.9 


7 


8.24 


13 


tt 


17.9 


12 


14.12 


18 


(( 


22.9 


19 


22.35 


23 


a 


27.9 


14 


16.47 


28 


u 


32.9 


11 


12.93 


33 


u 


37.9 


7 


8.24 


38 


a 


42.9 


2 


2.36 


43 


a 


47.9 


4 


4.71 


48 


a 


52.9 


1 


1.18 


53 


it 


57.9 


1 


1.18 


58 


it 


62.9 



The relation between high school expenditure and enrollment is shown 
more clearly by changing Tables XII and XIII into curves of distribution. 
Figure 1 is the result. 



30* 




3 8 13 18 22 28 33 38 43 48 55 58 
Erjro I I imc.r)t - — — Expenditure- 

Figure 1 
Per cent of district's total expenditure and enrollment in the high school department 

Both tables and the figure indicate that there is a well-marked central 
tendency in each item. Districts maintaining high school departments 
have a median of 20 per cent of their total enrollment in the high school, 
and to maintain this department, spend slightly more than 30 per cent of 
their total annual expenditure to maintain all their school. The middle 
fifty per cent of the districts enroll between 16 per cent and 25 per cent 



42 



RAYMOND ASA KENT 



of all their children in their high schools. While one district enrolls "48 
per cent to 52.9 per cent," only slightly more than two per cent of all 
districts enroll in their high schools over 38 per cent of their total enroll- 
ment. The limits of the middle half of the districts in expenditure fall 
both higher and lower than in enrollment. They are 21 per cent and 35 
per cent for expenditure as compared with 16 per cent and 25 per cent for 
enrollment. One school spends on its high school "58 per cent to 62.9 
per cent" of what it spends for all its schools each year. Yet less than 
one fifth of all spend more than 33 per cent of their money in their high 
school departments and about one sixth spend less than 18 per cent. 

Table XIV shows a marked positive correlation between per cent of 
enrollment in the high school and the money spent in that department, 
in these eighty-five districts. 

It is valuable to know how Minnesota compares in these items with 
other sections of the country. 

TABLE XIV 
Per Cent of a District's Total Enrollment and Annual Cost to Be Found 

in the High Schools 













Per Cent 


of Cost 










Enrollment 


0\ 

i 


T 

00 


T 

<*2 


1 

00 


1 


1 

00 


1 
to 


1 

00 


1 


l 

00 


o 

t^ 
io 
1 

CO 


CM 

*o 

1 
00 
lO 


3 to 7.9 


4 


2 
1 


3 

2 

2 


1 

3 
4 
3 
1 


1 

2 

11 

5 


1 

6 

5 
2 


2 
3 
3 

2 

1 


1 

6 


2 


1 

2 
1 


1 




8-12.9 




13-17.9 




18-22.9 




23-27.9 




28-32.9 


1 


33-37.9 




38-42.9 




43-47.9 




48-52.9 




53-57.9 




58-62.9 








Totals 


4 

5.5 


3 
6.3 


7 
13.3 


12 
20.5 


19 
20.5 


14 
23. 


11 
23.8 


7 
25.1 


2 
30.5 


4 
30.5 


1 

15.5 


1 


Medians 


30 5 







The Boise, Idaho, Survey 16 shows that in thirty-seven cities of the 
United States the lowest per cent of expenditure devoted to high schools 
is 10 per cent and the highest is 36 per cent. 17 Only seven of the thirty- 
seven spend over 30 per cent, the Minnesota median, in the department. 
Their mode is clearly marked at 21 per cent. Sixty-nine per cent of these 
eighty-five schools are above the group in which this figure falls. On the 
whole, the eighty-five high schools of Minnesota compare favorably with 

u Expert Survey of Public School System, Boise, Idaho, 1912. 
" Ibid., 18. 



STATE AID TO PUBLIC SCHOOLS 43 

the high schools of the thirty-seven cities. The variability, though, is con- 
siderably greater than that found among these cities. The distribution of 
expenditure for high schools among these cities is : 

TABLE XV 

Per Cent of School Expenditure Devoted to High School 
in Thirty-seven Cities 

Per Cent of Number of 

Expenditure Cities 

10 per cent to 14.9 per cent 3 

1 5 per cent to 19.9 per cent 9 

20 per cent to 24 . 9 per cent 16 

25 per cent to 29 . 9 per cent 2 

30 per cent to 34 . 9 per cent 5 

35 per cent to 39.9 per cent 2 

This survey gives the per cent of children in the high school in these 
thirty-seven cities, not by enrollment but by average daily attendance. 18 

The distribution of the total daily attendance in these cities that is to 
be found in their high schools is given in Table XVI. 

TABLE XVI 
Per Cent of Total Average Daily Attendance to Be Found in High Schools 

in Thirty-seven Cities 

Per Cent of Number of 

Attendance Cities 

5 per cent to 9.9 per cent 7 

10 per cent to 14.9 per cent 22 

15 per cent to 19.9 per cent 5 

20 per cent to 24 . 9 per cent 2 

25 per cent to 29.9 per cent 

30 per cent to 34 . 9 per cent 1 

In the "10 per cent to 14.9 per cent" group, there are 

6 schools at 10 per cent 
4 schools at 11 per cent 
6 schools at 12 per cent 
3 schools at 13 per cent 
3 schools at 14 per cent 

The modal per cent of attendance in high school among these cities is 
between 10 and 15 per cent. In Minnesota the median per cent of enroll- 
ment in high school is 20. Of the thirty-seven cities only three have more 
than 20 per cent of their average daily attendance in the high school. 

Making all due allowance for the fact that presence of pupils is meas- 
ured by average daily attendance in one group of schools and by enroll- 
ment in the other group, Minnesota's high schools rank high. It is very 
clear also that the districts maintaining high schools in this state are well 
disposed in the matter of supporting their high school departments. 
Whether the support is justly divided between the high school and the 
elementary school is a question which it is impossible to answer from any 
data at present available. 

is Ibid., 19. 



44 



RAYMOND ASA KENT 



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STATE AID TO PUBLIC SCHOOLS 



45 



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46 



RAYMOND ASA KENT 



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110-119.9 

120-129.9 

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140-149.9 

150-159.9 

160-169.9 

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STATE AID TO PUBLIC SCHOOLS 



47 





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48 



RAYMOND ASA KENT 



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50 



RAYMOND ASA KENT 



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STATE AID TO PUBLIC SCHOOLS 



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52 



RAYMOND ASA KENT 



Each of the preceding eight tables shows the relationship between two 
factors already considered in the discussion of high schools. 
<^ No correlation of amounts large enough to be significant appears in 
any of these tables of distribution. 

TABLE XXV 
High School Summary 



Item 


Median 


QUARTILES 




147.4 days 

25. 7 cents 

7 . 5 cents 

32 . 2 per cent 

6 . 3 mills 

$1,186 
9 months 1 ' 


142.4 days 

21.5 cents 

6. 1 cents 

25 .3 per cent 

5 . mills 

$937 


154.4 days 
29 9 cents 










37.8 per cent 
7 . 8 mills 






$1,610 











Summary 

The typical Minnesota high school system is located in a village of be- 
tween 1,250 and 1,275 people. Its pupils attend 147 days each year, and 
each pupil costs his district twenty-seven cents each day he attends. The 
district receives from the state seven and five-tenths cents for each pupil 
for each day he attends, and thirty-two per cent of all the annual income 
provided for maintaining the school system. The district, to raise its 
share, levies a tax of six mills on its real valuation. The assessed valua- 
tion of the property amounts to $1,186 for every child enrolled in the dis- 
trict. The variability among the different high school districts is such 
that statements of central tendencies concerning taxes and per cent of aid 
are somewhat • misleading. There is a marked tendency for districts to 
put money into their high schools in direct proportion to the number en- 
rolled in the high schools. There is no tendency, as is sometimes asserted, 
for some communities to support a high school "at the expense of the 
grades." 

In the lowest twenty-one per cent of high school districts the average 
levy for all high school districts would bring between $3.75 and $11.25 
per enrolled pupil. In the nineteen highest a similar tax would bring 
$37.50 to $800 per pupil. In the six districts of highest valuation the 
same levy would raise from $254 to $800 per pupil. And yet there is no 
distinction made by the state in distributing the aid because of this ex- 
tremely high variability. 



19 The modal length. It is the minimum and is exceeded by a negligible number of the 197 schools. 



STATE AID TO PUBLIC SCHOOLS 53 

What is the object of state aid to high schools? The original question 
in this connection seemed to be whether it is not as legitimate for the 
state to assist high schools by a direct bonus as to assist elementary schools, 
normal schools, and universities, 20 or whether the state is not bound to 
give such assistance in order to make its policy consistent for all divisions 
of public education. 

But more specific aims have been attempted in applying such aid. In 
Massachusetts "the inference is that state aid is offered as an inducement 
to employ more than one teacher." 21 In Maine the result was to increase 
greatly the number of free high schools, to raise very materially the stand- 
ards of secondary scholarship, and to increase the number of courses offered 
by high schools. 22 The original aim "in Wisconsin was to encourage the 
development of township or rural high schools." The results have been 
more far reaching in greatly broadening the curriculum, maintaining high 
standards of teachers' qualifications. 23 In California the aid "has helped 
struggling country schools where some of the very best secondary work is 
being done." 24 The aim in Florida seems to be to encourage beginning 
and successive advancement in work of high school grade. 25 Dakota's 
desire is "to aid rural schools to high standards." 26 New Hampshire's aid 
is for supervision. 27 Pennsylvania's plan resembles Florida's. 28 The re- 
sults in Rhode Island have justified the expectation of bringing pupils in 
smaller towns into contact with high schools. 29 

Summarizing, the author above quoted says that high school aid has 
made possible better teaching, better buildings, and better equipment. 
High school education is placed at the door of the child needing it. 30 

In brief, state aid to high schools has aimed to make secondary educa- 
tion common, public education, inspected and standardized by the state, 
and .has aimed to overcome the handicap to secondary education arising 
from the fact that this type of education is on the whole more costly than 
that in the years below it. All these aims, state aid has accomplished in 
Minnesota to a highly commendable degree. 

The question of importance for the state to answer now is whether aid 
to high schools shall be continued after its original purposes have been 
fulfilled. The question may be thought of as whether high school aid 

20 For general discussion see Johnston; and Bolton, Special^StateJiid to High Schools, Educational 
Review 31, February, 1906. 

21 Ibid., Bolton, 143. 

22 Ibid., 145. 

23 Ibid., 145.151. 
^Ibid., 153. 

25 Ibid. 
**lbid., 155. 
2' Ibid. 
™Ibid., 157. 
29 Ibid., 158. 
3 ° Ibid., 163. 



54 RAYMOND ASA KENT 

should be given with a view to accomplishing certain purposes and then 
discontinued, or whether the state has adopted a permanent policy of 
subsidy to secondary education. In the light of the historical development 
of secondary support, 31 practice points decidedly in the direction of con- 
tinued state subsidy in the future. 

If this judgment be true, two matters are of paramount importance at 
this time. The first is, what shall be the conditions governing the dis- 
tribution of this subsidy? If nothing else made this issue a vital one, the 
constantly and greatly increasing appropriations for the various forms of 
secondary aid would make it so. 32 The subsidy should be given where it 
is needed, if given at all. It is obvious that the district most needing it 
is the one which must impose the greatest tax levy in order to meet the 
minimum standards set by the state supervising agent. Why districts with 
valuations sufficient to raise from $600 to $800 per pupil by the average 
tax levy should receive the maximum state aid is inexplicable. Whether 
they should receive any special aid is extremely doubtful. If all special 
aid were withdrawn from them the state would still have the right of edu- 
cational supervision and standardization by virtue of the interpretation of 
scholarship prerequisites as a basis for the distribution of the apportion- 
ment income. 

The second question of great present importance is, why state aid to 
high schools is continued in such large amounts. If the primary aims 
connected with the establishment of this aid have been in large part 
served, what aims have grown out of this development? 

State aid to high schools in Minnesota has accomplished results highly 
commendable. It has caused high schools to increase in number very 
rapidly. It has made it possible for the state to be extraordinarily well 
provided with secondary education advantages in its small cities and 
villages. Requirements raised from time to time by a state board, with 
close inspection by an impartial, unattached, professional agent of the 
board, have given the state's system of high schools enviable rank. The 
important problems which the state now faces with respect to these schools 
are not merely those connected with continuing to maintain high ideals 
of scholarship, of educational accomplishment, of teachers' requirements, 
or adaptation of schools and courses of study to commonwealth and com- 
munity needs. One of the problems of greatest importance is a readjust- 
ment of the distribution of the special aid with distinct reference to the 
need, the effort, and the ability of the district concerned, with respect 
to the high school work of these districts. There should be a more thorough 
study of the high school districts to determine whether it is wise to continue 

31 C. F. Brown, The Making of Our Middle Schools ch. 13. Johnston et al., The Modern High School 
ch. 3. 

32 See summary at the end of Chapter 2. 



STATE AID TO PUBLIC SCHOOLS 55 

to give no aid nominally to elementary schools and to give all to the high 
schools of such districts, or whether each should be subsidized separately. 
The bases for any form of aid selected should be chosen with reference 
to specific aims. The methods by which it is thought that such aims are 
to be realized should be clearly outlined. The state should have a policy 
with respect both to what it is attempting and also of determining how its 
attempts are working. From time to time investigations and surveys 
should be made to determine whether the aid is accomplishing the results 
sought. Some such procedure is the only way of securing the desired 
"economy" and "efficiency." 



CHAPTER IV 

SPECIAL AID TO GRADED SCHOOLS 

At % the time that this study was made there were on the list of state 
graded schools 217 districts. 1 The data gathered made it possible to 
include in the study 206 of these. 

TABLE XXVI 
Attendance per Pupil per Year by Districts 



Number of 


Per Cent of 


Attendance — 


W» Districts 


All Districts 


Days 


1 


.5 


93 to 95 


6 


2.9 


111 


3 


1.5 


114 


7 


3.4 


117 


8 


3.9 


120 


11 


5.3 


123 


18 


8.7 


126 


15 


7.3 


129 


16 


7.8 


132 


22 


10.7 


135 


25 


12.1 


138 


20 


9.7 


141 


12 


5.8 


144 


15 


7.3 


147 


11 


5.3 


150 


8 


3.9 


153 


6 


2.9 


156 


1 


.5 


159 


1 


.5 


162 



The median time that each pupil enrolled in these 206 graded schools 
attends each year is 138.7 days. In the middle fifty per cent of the 
districts pupils attend between 128.6 and 147.2 days each. 

In less than one fifth of the districts the average attendance is lower 
than 120 days — three times the length of time a child needs to attend school 
in order for the district to be granted apportionment aid. In one district 
the attendance averages 162 days, or slightly more than eight ninths of 
the maximum, while in thirty-five per cent of all the districts the average 
is above 140 days, or seven eighths of the possible maximum. 

Length of the School Year 

Only a word here need be said about the length of the school year in 
these districts. There can not be less than nine months in order for any 
school to be on the list, to receive special state aid. 2 Only a few schools 
have longer school years. 

1 Eighteenth Annual Report of the Inspector of State Graded Schools, 8. 

2 See Chapter 2 and Appendix A, Rules of High School Board. 



STATE AID TO PUBLIC SCHOOLS 



57 



TABLE XXVII 
Cost per Pupil per Day of Attendance by Districts 



Number of 


Per Cent of 


Cost per Day — 


Districts 


All Districts 




Cents 


1 


.5 


8 to 


9.9 


3 


1.5 


10 


tt 


11.9 


7 


3.4 


12 


tt 


13.9 


12 


5.8 


14 


a 


15.9 


13 


6.3 


16 


a 


17.9 


25 


12.1 


18 


a 


19.9 


29 


14.1 


20 


u 


21.9 


24 


11.1 


22 


tt 


23.9 


18 


8.7 


24 


a 


25.9 


15 


7.2 


26 


a 


27.9 


18 


8.7 


28 


a 


29.9 


8 


3.9 


30 


it 


31.9 


4 


1.9 


32 


a 


33.9 


» 6 


2.9 


34 


n 


35.9 


6 


2.9 


36 


a 


37.9 


1 


.5 


38 


a 


39.9 


4 


1.9 


40 


<< 


41.9 


3 


1.5 


42 


<< 


43.9 


2 


1.0 


44 


a 


47.9 


1 


.5 


48 


(i 


49.9 


2 


1.0 


50 


a 


63.9 


4 


1.9 


64 


u 


64.9 



TABLE XXVIII 
Aid per Pupil per Day of Attendance by Districts 



Number of 


Per Cent of 


Aid 


per Day — 


Districts 


All Districts 




Cents 


3 


1.5 


3 to 


3.9 


4 


1.9 


4 


tt 


4.9 


13 


6.3 


5 


tt 


5.9 


53 


25.7 


6 


tt 


6.9 


63 


30.6 


7 


a 


7.9 


38 


18.4 


8 


C( 


8.9 


8 


3.9 


9 


a 


9.9 


10 


4.8 


10 


it 


10.9 


3 


1.5 


11 


a 


11.9 


5 


2.4 


12 


(( 


12.9 


1 


.5 


15 


a 


13.9 





.0 


14 


tt 


14.9 


1 


.5 


15 


it 


15.9 





.0 


16 


n 


16.9 





.0 


17 


u 


17.9 


2 


1.0 


18 


a 


18.9 





.0 


19 


u 


19.9 





.0 


20 


tt 


20.9 


1 


.5 


21 


tt 


21.9 


1 


.5 


24 


tt 


24.9 



58 



RAYMOND ASA KENT 



The median cost per pupil per day of attendance is 22 . 98 cents. In the 
middle half of the schools this cost lies between 19.4 cents and 28.7 cents. 
The modal group represents a cost of 20 to 20.9 cents. In the lowest 
eleven per cent of the districts the cost per unit does not reach 16 cents, 
while in the highest eleven per cent the unit cost is not below 36 cents. 

The median aid per day of attendance is 7 . 1 cents. The quartiles 
are 6.4 cents and 8.4 cents. Sixty-five per cent of the schools receive 
7 cents or more aid per day of attendance, or practically not less than 
one third the median cost per day of attendance. 



TABLE XXIX 



Part That State Aid Is of 


Total 


Annual 


Income 




by Districts 








Number of 


Per Cent 


OF 


State 


Aid — 


Districts 


All Districts 


Per 


Cent 


4 


1.9 




to 


2.9 


1 


.5 




3 


a 


8.9 


1 


.5 




9 


it 


11.9 


1 


.5 




12 


tt 


14.9 


3 


1.5 




15 


tt 


17.9 


10 


4.9 




18 


tt 


20.9 


4 


1.9 




21 


it 


23.9 


24 


11.1 




24 


it 


26.9 


16 


7.8 




27 


it 


29.9 


38 


18.4 




30 


it 


32.9 


28 


13.6 




33 


it 


35.9 


29 


14.1 




36 


it 


38.9 


18 


8.7 




39 


it 


41.9 


10 


4.9 




42 


tt 


44.9 


4 


1.9 




45 


it 


47.9 


6 


2.9 




48 


a 


53.9 


5 


2.4 




54 


-it 


56.9 


2 


1.0 




63 


tt 


65.9 


1 


.5 




81 


tt 


83.9 


1 


.5 




87 


it 


89.9 



The median part that state aid is of the total annual income for graded 
schools is 33 per cent. In one half of these schools this ratio falls between 
27.55 per cent and 38.44 per cent. Nine per cent of the districts receive 
less than 20 per cent of their annual income from the state, while fourteen 
per cent of the districts receive 42 per cent or more from state aid. 

The median special school tax levied by these districts to maintain 
their graded schools was 5.05 mills on the basis of the real valuation. 
The middle fifty per cent of the districts levied between 3 . 85 mills and 5 . 96 
mills. Eighty-five per cent of the districts had tax levies between 2 and 
8 mills. One district had a levy of 19 mills, but only three per cent of all 
levied over 10 mills. 



\ 



STATE AID TO PUBLIC SCHOOLS 



59 



TABLE XXX 
Special School Tax in Mills by Districts 



Number of 


Per Cent of 


Special 


School 


Districts 


All Districts 


Tax— 


Mills 


6 


2.9 


to 


1.9 


19 


9.2 


2 


it 


2.9 


28 


13.6 


3 


it 


3.9 


43 


20.9 


4 


it 


4.9 


48 


23.3 


5 


tt 


5.9 


27 


13.1 


6 


tt 


6.9 


13 


6.3 


7 


it 


7.9 


10 


4.9 


8 


a 


8.9 


6 


2.9 


9 


" 


9.9 


1 


.5 


10 


tt 


10.9 


3 


1.5 


11 


" 


11.9 


1 


.5 


16 


tt 


16.9 


1 


.5 


19 


tt 


19.9 



TABLE XXXI 
Assessed Valuation per Enrolled Pupil 



Number of 


Per Cent of 


Assessed Valuation 


Districts 


All Districts 


per 


Pupil 


5 


2.4 


$ 250 to $ 499 


9 


4.2 


500 


it 


749 


31 


14.6 


750 


tt 


999 


57 


26.9 


1,000 


it 


1,149 


50 


23.6 


1,250 


it 


1,499 


21 


9.9 


1,500 


it 


1,749 


10 


4.7 


1,750 


tt 


1,999 


5 


2.4 


2,000 


it 


2,249 


7 


3.3 


2,250 


tt 


2,499 


3 


1.4 


2,500 


it 


2,749 


3 


1.4 


2,750 


a 


2,999 


3 


1.4 


3,000 


it 


3,249 


1 


.5 


3,250 


it 


3,499 





.0 


3,500 


a 


3,749 





.0 


3,750 


tt 


3,999 


1 


.5 


4,000 


tt 


4,249 





.0 


4,250 


it 


4,499 





.0 


4,500 


it 


4,749 





.0 


4,750 


it 


4,999 


1 


.5 


5,000 


it 


5,249 


1 


.5 


5,250 


it 


5,499 





.0 


5,500 


a 


5,749 





.0 


5,750 


it 


5,999 





.0 


6,000 


it 


6,249 





.0 


6,250 


it 


6,499 





.0 


6,500 


it 


7,749 





.0 


7,750 


it 


7,999 





.0 


8,000 


tt 


8,499 


1 


.5 


8,500 


it 


8,749 





.0 


8,750 


tt 


8,999 





.0 


9,000 


it 


9,499 





.0 


9,500 


it 


10,499 





.0 


10,500 


tt 


10,999 


3 


1.4 


11,000 and up 



60 



RAYMOND ASA KENT 



The assessed valuation per enrolled pupil in 212 of these districts is 
$1,254. The middle fifty per cent have valuations between $1,034 and 
$1,582. Only four per cent have valuations over $3,250 per child, and 
only fourteen per cent over $2,000 per child. Over one fifth have valua- 
tions under $1,000 per child. 

Summary 

The typical graded school of Minnesota enrolls annually 119 pupils, 3 
who attend 139 days, each pupil costing the district twenty-three cents 
each day he attends. Of the total income of this school one third is con- 
tributed by the state and the remainder is raised by the district through 
a tax of 5.05 mills on each dollar of real valuation of taxable property. 

The Pearson method shows the following relationships : 



TABLE XXXII 
Correlations in Graded Schools 

I. Number of days annual attendance per pupil and local tax levy + 

II. Number of days attended per pupil during a year and per cent that 

state aid is of total annual maintenance income + 

III. Cost per pupil per day of attendance and aid per pupil per day of 

attendance + 

IV. Cost per pupil per day of attendance and per cent that state aid is of 

total annual maintenance income 

V. Cost per pupil per day of attendance and number of days annual 

attendance per pupil ' — 

VI. Aid per pupil per day of attendance and local tax levy + 



.02 



.009 



,26 



— .25 



11 
11 



8 In 2 districts, or 1.27 per cent of all, 



1 district 
5 districts 

17 

9 " 

14 

34 " 

14 
17 
12 

5 

5 

5 

2 " 

1 district 

1 " 

3 districts 

2 " 
2 " 

1 district 

2 districts 




1 district 
1 " 

1 " 



.64 

3.18 

10.83 

5.73 

8.92 

21.66 

8.92 

10.83 

7.64 

3.18 

3.18 

3.18 

1.27 

.64 

.64 

1.91 

1.27 

1.27 

.64 

1.27 

.0 

.0 

.64 

.64 

.64 



the enrollment is 50 to 59 pupils 
" " " 60 " 69 " 

" 70 

" " " 80 

" 90 

" " " 100 

" « « 110 

" « 12Q 

" 130 



"140 
"150 
"160 
"170 
"180 
"190 
"200 
"210 
"220 
"230 
"240 
"280 
"310 
"330 
"350 
"360 
"400 



79 
89 
99 
109 
119 
129 
139 
149 
159 
169 
179 
189 
199 
209 
219 
229 
239 
249 
289 
319 
339 
359 
369 
409 



STATE AID TO PUBLIC SCHOOLS 61 

Graded schools have only the department of grade work, with a few 
exceptions. By actual count nearly one hundred of the 216 have just 
four instructors each, including the principal. This similarity offers the 
opportunity to study the effect of state aid in a group of schools more 
nearly representing a clearly defined type of school than any other division 
that it has been possible to make. 4 The division "high schools" includes 
both secondary and elementary departments of work. Rural schools 
include the so-called semi-graded and ungraded or common schools. 
.Among the "common schools" are three classes with respect to aid. 
Graded schools, on the other hand, exist as a logically fairly well defined 
group. 

Special aid to graded schools came in Minnesota seventeen years after 
high school aid. By common practice these two aids seem to have been 
granted in similar order of precedence in other states. 5 State supervision, 
with all its implications of high standards and requirements with respect 
to buildings, equipment, teachers, length of school year, curricula, and 
scholarship, has been the aim sought. 

Graded school aid has without doubt increased the number of high 
schools and helped to improve the high school situation in the state. 
Conformity to state supervision and requirements is learned through 
meeting graded aid prerequisites. The state of mind and attitude of a 
district resulting from familiarity with requirements for grade school aid 
are without doubt much more favorable to the added requirements for a 
district's being placed upon the high school list. The general large increase 
of state aid through recent years indicates, too, that a district that once 
receives a state subsidy has an increasing appetite for more of the same 
kind of sustenance. 

Graded school aid has without doubt lengthened the school year, 
raised teaching efficiency, and bettered the physical conditions under 
which instruction is given in these schools. 

On the other hand, neither the effort the district makes nor the pro- 
portion it receives from the state seems to make any difference in the 
number of days a child attends (I and II). 6 There is no marked indica- 
tion that cost per day of attendance and the aid per day of attendance 
have any relation one to another (III). Neither is there any marked 
indication that where this daily cost is highest the districts are receiving 
any particular proportion of their total income from state aid (IV) . The re- 
lation between the proportion of aid and the local tax is not enough to be a 
basis for very definite conclusions. Table XXXIII shows a tendency toward 
negative correlation, however, which fact may be of some importance. 

4 See Chapter 2. 

6 See Special State Aid to High Sckools, 31:3rd div. 

8 Roman numerals refer to items in table 32. 



62 



RAYMOND ASA KENT 



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STATE AID TO PUBLIC SCHOOLS 



63 



Cost per pupil day, assessed valuation per pupil enrolled, and the special 
school levy distributions do not contain many cases of great extremes. 
The attendance in days per pupil and the per cent of revenue from the 
state have their distributions less centered. The variability from the 
central tendency in the last named distribution is probably accentuated 
by the fact that a few schools receive aid other than that merely for graded 
schools, as aid for consolidation, aid for industrial work, or aid for two 
years of high school work. 

In the data studied there is no proof that special state aid to graded 
schools has resulted in any condition that is distinctly bad. The relation- 
ship between cost and per cent of state aid shows a tendency that may result 
in districts which are not needy receiving too large a proportion from the 
state. The danger of this result will always be present and the result 
itself will tend to creep in in greater or less degree as long as the aid is 
distributed without any reference to local ability or local effort. 

Local communities and the state at large have received, it appears, 
two main benefits from aid to this group of schools: first, elementary 
schools and school work have been standardized; second, communities 
have qualified for high school rank much sooner than without the stimulat- 
ing effect of the intermediate experience of receiving graded school aid. 
Each of these results is highly justifiable. There is one question, how- 
ever, that is worth while raising in this connection. It is, whether, with 
the liberal amount of aid now given this type of school, more definite 
encouragement could not be offered for communities to do something 
different than the stereotyped form of work, particularly in the grammar 
grades. It is true that such incentive has been offered through additional 
aid. 

TABLE XXXIV 
Grade School Summary 



Item 


Median 


Quartiles 




138.7 days 

23 .0 cents 

7 . 1 cents 

33.0 per cent 

5 . 1 mills 

$1,254 
9 months. 7 


129.6 days 

19.4 cents 

6 . 4 cents 

27.6 per cent 

3 . 9 mills 

$1,034 


147.2 days 




28.7 cents 












6 . mills 




$1,582 



7 The modal length. It is the minimum and is exceeded by a negligible number of the 212 schools. 



64 RAYMOND ASA KENT 

It has already proven distinctly worth while to encourage communities 
to do independent things even though they can not or do not aspire to 
establish even a partial high school. Industrial work for both boys and 
girls should be encouraged below the high school. In some schools de- 
partmental work could be introduced. It does not seem as though the 
state needs to wait on special appropriations to encourage specific experi- 
ments and increments of work among graded schools. It is quite probable 
that conscious administration of the graded aid to encourage the special 
and varied forms of effort would tend to bring results of similar nature 
to those that have been sought so far only through additional aid for special 
work. 



CHAPTER V 

SPECIAL AID TO RURAL SCHOOLS 

Of the three groups of schools which were to be discussed only one 
group, that of the rural schools, remains. The facts concerning the seven 
factors already discussed for high and graded school districts will be pre- 
sented first. These will be followed by a discussion of certain implications 
true for the rural field only. 

TABLE XXXV 

Number of Actual Days Attendance per Pupil, 
by Districts 



Number of 


Per Cent of 


Attendance — 


Districts 


All Districts 


Days 


2 


.2 


30 to 34 


3 


.3 


35 


" 39 


4 


.4 


40 


« 44 


4 


.4 


45 


" 49 


10 


1.0 


50 


" 54 


17 


1.7 


55 


« 59 


30 


2.9 


60 


" 64 


41 


4.0 


65 


" 69 


51 


5.0 


70 


" 74 


52 


5.1 


75 


" 79 


72 


7.1 


80 


" 84 


79 


7.8 


85 


" 89 


96 


9.5 


90 


« 94 


76 


7.5 


95 


« 99 


80 


7.9 


100 


" 104 


86 


8.5 


105 


" 109 


82 


8.1 


110 


" 114 


68 


6.7 


115 


" 119 


42 


4.2 


120 


" 124 


37 


3.7 


125 


" 129 


27 


2.7 


130 


" 134 


15 


1.5 


135 


" 139 


19 


1.9 


140 


" 144 


7 


.7 


145 


" 149 


5 


.5 


150 


" 154 


2 


.2 


155 


" 159 


2 


.2 


160 


" 164 


1 


.1 


165 


" 169 


1 


.1 


170 


" 174 



The median length of time that a pupil in a rural district attends 
school during the year is 97.9 days. The quartiles of attendance are 81 
days and 112 days. The distribution of this attendance is given in Table 
XXXV. The modal attendance time is in the group "90 to 95 days"; 
the median and the mode are thus in adjoining groups. Fifty-three per 
cent attend less than 100 days, or five months a year. Less than sixteen 



66 



RAYMOND ASA KENT 



per cent attend 120 days, or six months. On the other hand, 99 . 5 per cent 
attend 40 days or more, the attendance required for sharing in the current 
school fund. 

TABLE XXXVI 
Length of School Year in Months 



The number of districts having a school year of three months is 

" from 3 to 4 " " 



5 
6 
7 
8 
9 
10 



1 

1 

32 

80 

165 
606 
201 



The median length of the school year in l,095 l districts is 7.7 months. 
The middle one half of these districts have a school year between 6.9 
months and 7 . 8 months in length. 

There is a very clearly marked mode at eight months. One half of all 
these schools have less than eight months of school annually, while only 
one half of one per cent have less than seven months. 

If the length of these school years be calculated in days then the table 
would read: One school has a year of between 41 and 60 days, etc., and 
the median length is 148 . 9 days. This is 16.4 days longer than the length 
of rural schools in Minnesota as found by the Bureau of Education for 
the year 1909-10. 2 The Bureau, however, includes in the group, "rural 
schools," all schools not in cities of 2,500 or more inhabitants. 3 

On the other hand, the median school year in the Minnesota rural 
school, as that division is here used, is 11.2 days longer than the average 
school year in all rural schools in the United States, as reported by the 
Bureau. 4 In reality this means that the one- and two-room rural schools 
of Minnesota are really considerably in advance of the rest of the schools 
in their own class over the country as a whole. On the other hand, it is 
doubtful whether the state is very far in advance of the central tendency 
of the other states in its own geographical division of territory. The 
accompanying figure shows the general tendency toward increasing length 
of school years. Minnesota falls in the North Central Division. 

One would naturally expect that the special aid of the rural schools in 
Minnesota would result in a lengthened school year. The length of the 

1 More than 1,011 districts from the fourteen counties could be included in this item. Since this 
factor was not used in any correlations there is no point in making the number correspond with the number 
of districts used in the correlations. Hence, 1,095 instead ot 1,011. 

2 Monahan, The Status of Rural Education in the United States, United States Bureau of Education 
Bulletin no. 8 p. 23. 1913. 

a Ibid., 10. 
« Ibid., 23. 



STATE AID TO PUBLIC SCHOOLS 



67 



school year is one of the two essential requirements conditioning such aid. 5 
It may be very seriously doubted whether this aid has kept these schools 
in session longer each year than the average school year for other rural 
schools in the same part of the country. 6 



Days 




f? 


£ 


CO 


00 


o 




* 







o 


6 


o 
CO 


1 


6 




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Q 


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Figure 2 7 














Increasing length 


of term, 


in day 


S 



fc 

^ 



o 

CK 



The median cost per day of actual attendance per pupil is 22.9 cents. 
In the middle half of the districts this cost is between 17.08 cents and 
31.86 cents. The modal cost is between 15 and 20 cents. This is only 
the second step removed from the group of lowest cost, but the eighteenth 
step from the group of highest cost. In this item there is, then, a very 
marked tendency toward an appearance of scattered cases of districts in 
which the cost is much higher than the median, but for no such scattering 
to appear below the median cost. In over seventy per cent of the districts 
the cost is less than 30 cents per pupil per day, while in over thirty-eight 
per cent it is less than 20 cents. In only slightly more than two per cent 
of the districts is the cost above 75 cents. 



6 See Chapter 2. 

• Cf. Rural Life and Education, 100. 

7 From Cubberley's Rural Life and Education, 101 (with the publisher's permission). 



68 



RAYMOND ASA KENT 



TABLE XXXVII 
Cost per Pupil per Day of Attendance by Districts 



Number of 


Per Cent of 


Cost 


per Day — 


Districts 


All Districts 




Cents 


6 


.59 


5 to 


9.9 


146 


14.44 


10 


tt 


14.9 


240 


23.74 


15 


cc 


19.9 


199 


19.78 


20 


it 


24.9 


130 


12.85 


25 


it 


29.9 


99 


9.79 


30 


u 


34.9 


54 


5.34 


35 


tt 


39.9 


41 


4.05 


40 


a 


44.9 


21 


2.07 


45 


tt 


49.9 


22 


2.16 


50 


it 


54.9 


9 


.89 


55 


<< 


59.9 


6 


.59 


60 


a 


64.9 


4 


.39 


65 


tt 


69.9 


11 


1.08 


70 


a 


74.9 


5 


.49 


75 


tt 


79.9 


3 


.20 


80 


tt 


84.9 


7 


.69 


85 


tt 


89.9 


1 


.09 


90 


tt 


94.9 


1 


.09 


95 


tt 


99.9 


1 


.09 


100 


tt 


104.9 


5 


.49 


105 


tt 


109.9 and up 



TABLE XXXVIII 

State Aid per Pupil per Day of Attendance 
by Districts 



Number of 


Per Cent of 


Aid 


PER 


Day — 




Districts 


All Districts 




Cents 




1 


1 


0. 


1 to 


0.9 




4 


.4 


1 


it 


1.9 




1 


.1 


2 


tt 


2.9 




19 


1.9 


3 


n 


3.9 




78 


7.7 


4 


n 


4.9 




119 


11.8 


5 


tt 


5.9 




113 


11.2 


6 


tt 


6.9 




143 


14.1 


7 


it 


7.9 




168 


16.6 


8 


it 


8.9 




119 


11.8 


9 


a 


9.9 




100 


9.9 


10 


it 


10.9 




48 


4.7 


11 


tt 


11.9 




32 


3.1 


12 


tt 


12.9 




26 


2.6 


13 


" 


13.9 




10 


1.0 


14 


it 


14.9 




7 


.7 


15 


tt 


15.9 




6 


.6 


16 


tt 


16.9 




4 


.4 


17 


tt 


17.9 




2 


.2 


18 


tt 


18.9 




6 


.6 


19 


tt 


19.9 






.1 


20 


tt 


20.9 






.1 


21 


tt 


21.9 






.1 


23 


tt 


23.9 






.1 


25 


it 


25.9 






.1 


27 


a 


27.9 




2 


.2 


45 


n 


45.9 





STATE AID TO PUBLIC SCHOOLS 



69 



The median aid per day of actual attendance is 8.8 cents. The mode 
falls in the same group as the median. The middle half of all the districts 
receive aid per day between 6.2 cents and 9.5 cents. In twenty-five of 
the districts the aid is over 10 cents per pupil daily; in ten per cent, the aid 
is less than 5 cents per day. 

TABLE XXXIX 

The Per Cent That State Aid Is of the Total Annual 
Income for Maintenance by Districts 



Number of 


Per Cent of 


State 


Aid — 


Districts 


All Districts 


Pe 


R 


Cent 


10 


1.0 


to 


4.9 


20 


2.0 


5 


a 


9.9 


57 


5.6 


10 


tt 


14.9 


72 


7.1 


15 


a 


19.9 


68 


6.7 


20 


tt 


24.9 


110 


10.9 


25 


tt 


29.9 


113 


11.2 


30 


a 


34.9 


125 


12.4 


35 


tt 


39.9 


132 


13.0 


40 


tt 


44.9 


99 


9.8 


45 


a 


49.9 


96 


9.5 


50 


it 


54.9 


51 


5.0 


55 


tt 


59.9 


30 


3.0 


60 


a 


64.9 


16 


1.6 


65 


a 


69.9 


4 


.4 


70 


a 


74.9 


4 


.4 


75 


a 


79.9 


3 


.3 


80 


tt 


84.9 


1 


.1 


95 


tt 


99.9 



TABLE XL 

Local Tax for Maintenance as per Mills 
of Real Taxable Valuation 



Number of 


Per Cent of 


Local 


Tax— 


Districts 


All Districts 




Mills 


201 


19.88 


to 


.9 


445 


44.01 


1 


a 


1.9 


190 


18.79 


2 


it 


2.9 


53 


5.24 


3 


tt 


3.9 


68 


6.73 


4 


it 


4.9 


23 


2.27 


5 


it 


5.9 


8 


.79 


6 


tt 


6.9 


8 


.79 


7 


tt 


7.9 


5 


.49 


8 


tt 


8.9 


7 


.69 


9 


tt 


9.9 


1 


.09 


10 


tt 


10.9 


2 


.19 


11 


tt 


11.9 



The median part that the two kinds of state aid constitute of the year's 
total income is 37.2 per cent. The middle half of these districts receive 
directly from the state between 25.7 per cent and 45 :5 per cent of their 
total annual income for maintenance. This includes many districts 



70 



RAYMOND ASA KENT 



whose only receipt from the state is the apportionment money. There 
is a fairly clearly marked mode in the "40 per cent to 45 per cent" group. 
On account of the fact that 45 per cent aid marks practically the end of 
three fourths of the number of cases, however, the median falls quite a 
little above this modal per cent. 

Over twenty per cent of all the districts receive 50 per cent or more 
directly from state funds, while only twenty-two per cent receive less than 
25 per cent from the state. 

It should be remembered that of the 1,011 districts included in this 
array, only 461 receive special aid for rural schools; 550 receive only 
the current school fund. 



TABLE XLI 
Assessed Valuation per Enrolled Pupil by Districts 



Number of 


Per Cent of 


Assessed 


Valuation 


Districts 


All Districts 


per 


Pupil 


9 


1.44 


below $ 300 


24 


3.84 


$ 300 to 499 


25 


4.00 


500 


" 699 


38 


6.08 


700 


" 899 


56 


8.96 


900 


" 1,099 


43 


6.88 


1,100 


" 1,299 


39 


6.24 


1,300 


" 1,499 


35 


5.60 


1,500 


" 1,699 


41 


6.56 


1,700 


" 1,899 


29 


4.64 


1,900 


" 2,099 


27 


4.32 


2,100 


" 2,299 


33 


5.28 


2,300 


" 2,499 


36 


5.76 


2,500 


" 2,699 


20 


3.20 


2,700 


" 2,899 


19 


3.04 


2,900 


" 3,099 


20 


3.20 


3,100 


" 3,299 


13 


1.98 


3,300 


" 3,499 


10 


1.60 


3,500 


" 3,699 


14 


2.24 


3,700 


" 3,899 


8 


1.28 


3,900 


" 4,099 


5 


.80 


4,100 


" 4,299 


10 


1.60 


4,300 


" 4,499 


9 


1.44 


4,500 


" 4,699 


4 


.64 


4,700 


" 4,899 


8 


1.28 


4,900 


" 5,099 


2 


.32 


5,100 


" 5,299 


4 


.64 


5,300 


" 5,499 


37 


5.92 


5,500 and above 



The median special local school tax levy on the real valuation of the 
property is 1.7 mills per district. In the middle fifty per cent of the 
districts this tax varies from 1 . 7 mills to 1.58 mills. The modal tax is 
very clearly "1 to 1.9 mills," in the same group as the median. In over 
eighty-four per cent of the districts the tax is less than 3 mills. In ninety- 
seven per cent of the districts it is less than 6 mills. This striking central 



STATE AID TO PUBLIC SCHOOLS 



71 



tendency is paralleled only by the fact that forty-four per cent of all the 
cases are in the modal (median) group. 

This remarkable similarity among rural districts with respect to their 
tax levies is not to be interpreted to mean equal similarity with respect to 
actual school support — the amount actually raised for schools in these 
districts. This fact is clearly shown by a consideration of the assessed 
valuation per enrolled pupil. The latter item was computed for a random 
selection of 618 districts out of the 1,011 districts. 

The median assessed valuation per enrolled pupil in 618 rural school 
districts is $2,195. In one half of these districts the valuation per pupil 
is between $1,321 and $3,273. Ten per cent of the districts with the highest 
valuation would yield from $450 to over $550 per pupil with a tax levy of 
10 mills on the assessed valuation. The ten per cent of lowest valuation 
would yield between $30 and $70 approximately from a similar levy. So 
far as unequal abilities among individual districts are concerned, there is 
plenty of justification for some plan of state aid that shall tend to equalize 
the burden of support. 

The lists of districts with their respective valuation, in Table XLIII, show 
the inequality among districts in one county of southwestern Minnesota. 



TABLE XLII 
Monthly Salary of Rural Teachers 



Number of 


Per Cent of 


Monthly Salary of 


Districts 


All Districts 


Rural Teachers 


10 


1.0 


$30 to $34 


54 


5.3 


35 " 


39 


176 


17.4 


40 " 


44 


231 


22.9 


45 " 


49 


305 


30.2 


50 " 


54 


137 


13.5 


55 " 


59 


69 


6.6 


60 " 


64 


23 


2.3 


65 " 


69 


6 


.6 


70 " 


74 


2 


.2 


75 " 


79 



The median monthly salary of teachers in 1,011 districts is $51.14. 
The middle fifty per cent of districts have salaries ranging from $45 . 63 to 
$56.30 per month. There is a clearly marked mode in the "$50 to $55" 
group, where the median falls. About twenty-four per cent of the districts 
pay less than $45 per month, while only nine and seven-tenths per cent 
pay $60 or more. 



72 



RAYMOND ASA KENT 



TABLE XLIII 

Blue Earth County 

I certify that the following is a correct statement of the school tax rate and 
assessed valuation for the school districts of Blue Earth County for the school year 
ending July 31, 1913. 

Signed — C. L. Kennedy, County Auditor 

School Districts 
(Include in the special school tax the local 1-mill but not the state 1-mill tax.) 



Name or 


Assessed 


Special 


Name or 


Assessed 


Special 


Number 


Valuation 


School Tax 


Number 


Valuation 


School Tax 


1 


$4,187,699 


10.0 


85 


$ 79,174 


3.3 


2 


69,242 


1.5 


86 


113,177 


1.3 


3 


64,033 


1.6 


87 


236,727 


8.5 


4 


41,712 


4.8 


88 


65,391 


2.3 


5 


62,255 


3.2 


89 


115,160 


2.3 


6 


50,950 


3.0 


90 


72,681 


2.8 


7 


110,087 


8.4 


91 


71,143 


4.2 


8 


83,462 


4.2 


92 


68,752 


2.9 


10 


65,481 


4.2 


94 


92,023 


1.1 


11 


136,924 


0.6 


95 


104,164 


2.0 


12 


74,744 i 


4.0 


96 


47,540 


0.0 


13 


44,254 


3.4 


97 


108,704 


1.9 


14 


61,135 


2.9 


98 


57,720 


7.0 


15 


81,753 


2.8 


99 


114,065 


2.7 


16 


117,889 


10.2 


100 


110,190 


14.2 


17 


62,634 


4.8 


103 


62,688 


8.0 


19 


350,042 


18.6 


104 


66,221 


3.0 


20 


110,813 


1.4 


105 


324,670 


17.0 


21 


93,740 


3.7 


106 


78,346 


4.3 


22 


46,622 


5.4 


107 


38,054 


6.6 


23 


76,057 


3.3 


108 


47,822 


3.7 


24 


157,974 


7.6 


109 


158,782 


1.0 


25 


73,421 


2.1 


110 


43,089 


4.7 


26 


50,030 


6.0 


111 


56,312 


3.6 


27 


105,862 


3.8 


112 


251,848 


20.0 


29 


69,499 


2.9 


113 


65,399 


4.6 


30 


82,512 


2.4 


114 


56,121 


3.6 


31 


89,683 


1.1 


115 


128,828 


2.0 


32 


108,630 


3.2 


116 


122,958 


0.8 


33 


110,199 


1.8 


117 


66,818 


2.3 


34 


80,201 


2.8 


118 


56,007 


6.3 


35 


49,919 


4.0 


119 


76,109 


2.6 


36 


75,654 


4.0 


120 


57,521 


4.4 


38 


64,730 


0.0 


121 


67,927 


3.7 


39 


81,094 


2.2 


122 


89,657 


1.7 


40 


77,695 


3.2 


123 


34,811 


11.2 


41 


83,697 


3.6 


124 


51,226 


4.0 


42 


81,478 


4.9 


125 


75,611 


2.7 


43 


93,909 


16.0 


126 


60,858 


1.7 


44 


91,499 


1.9 


127 


47,882 


4.2 


45 


85,023 


12.6 


128 


57,632 


2.6 


46 


49,676 


9.1 


129 


40,441 


3.7 


47 


76,369 


2.7 


130 


118,732 


1.7 


48 


56,098 


3.6 


131 


80,216 


1.3 


49 


79,871 


2.8 


133 


61,894 


4.1 


50 


45,391 


5.5 


135 


52,805 


2.9 


51 


53,828 


3.7 


136 


59,240 


6.8 


52 


35,982 


9.7 


137 


92,922 


1.6 



STATE AID TO PUBLIC SCHOOLS 



73 



TABLE XLIII— Continued 



Name or 


Assessed 


Special 


Name or 


Assessed 


Special 


Number 


Valuation 


School Tax 


Number 


Valuation 


School Tax 


53 


74,384 


2.0 


138 


61,134 


5.6 


55 


90,728 


2.2 


139 


49,607 


5.0 


56 


69,348 


5.6 


140 


38,650 


6.5 


57 


65,953 


3.8 


141 


68,758 


4.4 


58 


48,633 


4.2 


142 


52,544 


4.8 


59 


47,428 


5.0 


143 


41,122 


7.3 


61 


55,181 


7.5 


144 


85,580 


1.3 


63 


75,891 


5.3 


145 


32,076 


9.4 


66 


107,888 


1.9 


146 


176,380 


11.3 


67 


85,645 


3.5 


147 


75,716 


2.7 


69 


62,299 


2.6 


148 


38,648 


5.2 


71 


64,796 


4.1 


149 


59,828 


9.2 


72 


74,148 


6.1 


150 


51,383 


4.9 


74 


112,600 


1.8 


151 


39,377 


7.7 


75 


82,542 


3.0 


152 


46,844 


6.4 


76 


51,578 


2.4 


153 


33,136 


4.5 


77 


69,095 


3.6 


154 


36,596 


6.1 


78 


79,430 


3.8 


155 


63,004 


3.6 


79 


66,387 


5.0 


156 


45,636 


6.4 


80 


55,775 


4.5 


157 


60,235 


0.9 


83 


146,265 


5.1 









Statistics taken from the biennial state reports covering the respective 
years indicate that salaries are rising fast in these schools in Minnesota 
while total enrollment slowly declines. The figures for total enrollment 
and for total salaries are platted to show the per cent of change in each 
since 1903. 

Figure 3 indicates clearly that while enrollment has been slightly 
declining, almost steadily, during these eleven years, the cost of rural 
education has risen greatly. The rise in the amount spent for salaries 
and the close paralleling of the lines for total cost and for salaries would 
seem to indicate that the factor most responsible for rise in total cost is 
rise in salaries. 

The rise in total cost for rural education is not peculiar to Minnesota. 
The accompanying figure shows the increase of cost on the basis of average 
daily attendance for the United States, by geographical divisions, from 
1870-71 to 1910-11. 



70%- 



607^ 




Q 



5 7° 



!90: 



■5 b "7 '8 
Years Irjcludcd 



9 . '10 II '12- 
Eorollment i — ■ — ► 
Ha'irttenarjce — 
SalaT i«i 



13 



Figure 3 8 

Changes in the rural schools of Minnesota during a period 
of ten years 

• In 1909 the State Department of Education changed the basis for classifying the rural schools. 
Hence arises the necessity of the break in figure 3 between 1908 and 1909, beginning on the base line again 
for the latter year. 



STATE AID TO PUBLIC SCHOOLS 




Figure 4 9 
Increasing cost of education per pupil in average daily attendance 

Having collected certain data we now have working concepts. By the 
use of these concepts we are able to determine the nature and extent of 
relations between certain important factors in the rural schools. The 
method of comparison is that of the Pearson coefficient. The figures used 
as the basis of the computations are distributions in the preceding tables. 



I. 



TABLE XLIV 
Correlations in Rural Schools 
Number of days annual attendance per pupil and 



11 
18 



per cent_ that state aid is of total annual main 

tenance income + 

II. Local tax levy and monthly salary of teacher + 

III. Monthly salary of teacher and per cent that state 

aid is of total annual maintenance income + .24 

IV. Local tax levy and per cent that state aid is of total 

annual maintenance income — .32 

V. Monthly salary of teacher and number of days 

annual attendance per pupil + . 3S 

Note: None of these coefficients is corrected for attenuation. 



' From Rural Life and Education, 99 (with the publisher's permission). 



76 RAYMOND ASA KENT 

There are only two correlations that are of significance. The first is 
the one between the districts' special school tax levy and the amount that 
districts receive from the state for the support of their schools (IV). The 
relation here is negative and although unattenuated, large enough to indi- 
cate a decided tendency. There have been a good many statements made 
to the effect that state aid to rural schools has been an incentive to the 
schools to do greater things. It is probably true that the conditions 
requisite for aid have been complied with by the schools that have received 
this aid. Further than the specific changes brought by such compliance, 
however, the assertions of resulting benefit have not been demonstrated. 
They have never been more than opinions on the part of individuals who 
have more or less intimate knowledge of the facts and who represent great 
variability with respect to unbiased judgment on the issue. 

Here is a correlation figure which shows that there is a marked tendency 
for rural school districts to raise, and hence to expend, less of their own 
money on schools, the more they are given in subsidy by the state. The 
influence of state aid is negative. Lower local school taxes accompany 
increase in state aid. So far as the special tax for school maintenance is 
a measure of local effort, state aid to rural schools has not been an incen- 
tive to such effort. The effects of such financial assistance have been 
rather to cause the benefited districts to make less exertion to maintain 
their schools than if the aid had not been given. 

Some may still insist, of course, that in order for a school to receive 
any special state aid certain minimum requirements, enumerated above, 10 
must be met. To meet these requirements an extra expenditure is neces- 
sary. This fact may be quite true. We have no doubt that the incentive 
of obtaining state aid has served to increase the length of the school year 
in many districts. Just how far this has been true we have no basis for 
judging. It is highly significant, though, that after all the necessary 
standardi^have been met, the districts that receive the aid are able to 
make a financial profit to their tax payers because of this aid. 

Again, it may be claimed that the districts which previously had the 
higher school taxes, receive the special aid, and hence it is only just that 
this aid should lessen the local burden. If this assertion were true it ought 
to follow that after special state aid had been given to a considerable num- 
ber of districts over a period of time, rural school taxes would tend to 
approach a level. There is no indication anywhere that such a level exists 
or tends to exist by reason of such assistance. 

Our discussion so far has included both those districts that receive 
special state aid and those that do not, the latter receiving only the appor- 
tionment. Let us look for a moment at the former, those districts receiv- 
ing each kind of aid. 

10 Chapter 2. 



STATE AID TO PUBLIC SCHOOLS 



77 



Of the 1,011 districts included in the study, 461 receive one of the three 
amounts of special state aid given to semi-graded and rural schools in 1912. 
The taxes in these 461 districts ranged as follows. 11 

TABLE XLV 
Local Tax Rate in Mills 



Number of 


Per Cent ok 


Local 


Tax Rate 


Districts 


All Districts 


in 


Mi 


LLS 


18 


3.9 


.3 to 


.5 


55 


11.9 


.6 


" 


.8 


87 


18.9 


.9 


it 


1.1 


78 


16.9 


1.2 


" 


1.4 


65 


14.1 


1.5 


" 


1.7 


37 


8.0 


1.8 


a 


2.0 


30 


6.5 


2.1 


it 


2.3 


28 


6.1 


2.4 


" 


2.6 


10 


2.2 


2.7 


" 


2.9 


11 


2.4 


3.0 


it 


3.2 


8 


1.7 


3.3 


" 


3.5 


5 


1.1 


3.6 


" 


3.8 


6 


1.3 


3.9 


it 


4.1 


3 


.7 


4.2 


it 


4.4 


6 


1.3 


4.5 


it 


4.7 


6 


1.3 


4.8 


it 


5.0 


1 


.2 


5.1 


a 


5.3 


2 


.4 


5.4 


it 


5.6 


1 


.2 


6.6 


it 


6.8 


1 


.2 


7.3 


a 


7.5 


1 


.2 


7.9 


" 


8.1 


1 


.2 


11.2 




11.4 



The median tax levy in these 461 districts is 1.4 mills on the dollar. 
In the middle fifty per cent of all the districts the levy is between . 9 mills 
and 2 mills. In the 1,011 districts it is 1.9 mills on the dollar. There is 
a decrease of one fifth in the median amount of local effort expended in 
this group as compared with the group of all the rural districts. 

We should naturally expect that the money which the state contrib- 
uted toward the up-keep of the schools in these districts would be a larger 
proportion of the total annual maintenance receipts than for the 1,011 
districts. Table XLVI shows that this is true. 

The median portion of maintenance income which these 461 districts 
receive from the state is 46 per cent. The median for the 1,011 districts 
was 37.2 per cent. Thirty-four per cent of these districts receive one 
half or more of their annual income from the state. Only three per cent 
receive less than one fifth from the state, and only fourteen per cent re- 
ceive less than one third from the state. 

Between seventy-five and eighty per cent of the rural schools that 
receive special state aid are reimbursed more than one third of their total 



11 Based on true valuation as in table on p. 37. 



78 



RAYMOND ASA KENT 



maintenance fund; nearly one third receive from the state over 50 per 
cent of such fund; and it is possible for a district to receive nearly the whole 
amount from the state funds. 12 



TABLE XLVI 

Per Cent That State Aid Is of Districts' 
Annual Income 



Number of 


Per Cent of 1 


State 


Aid — 


Districts 


All Districts 


Per 


Cent 


1 


.2 


5 


to 


7.9 


2 


.4 


8 


it 


10.9 


2 


.4 


11 


« 


13.9 


4 


.9 


14 


it 


16.9 


3 


.7 


17 


it 


19.9 


2 


.4 


20 


n 


22.9 


14 


3.0 


23 


it 


25.9 


15 


3.3 


26 


it 


28.9 


21 


4.6 


29 


it 


31.9 


32 


6.9 


32 


it 


34.9 


31 


6.7 


35 


it 


37.9 


41 


8.9 


38 


It 


40.9 


42 


9.1 


41 


tc 


43.9 


54 


11.7 


44 


it 


46.9 


40 


8.7 


47 


it 


49.9 


42 


9.1 


50 


tt 


52.9 


39 


8.5 


53 


it 


55.9 


24 


5.2 


56 


it 


58.9 


18 


3.9 


59 


tt 


61.9 


13 


2.8 


62 


tt 


64.9 


5 


1.1 


65 


tt 


67.9 


7 


1.5 


68 


ti 


70.9 


1 


.2 


71 


tt 


73.9 


4 


.9 


74 


tt 


76.9 


1 


.2 


77 


tt 


79.9 


2 


.4 


80 


tt 


82.9 


1 


.2 


83 


it 


99.9 



The coefficient of correlation between the two items of local tax and 
per cent received from the state for these 461 districts is +0.34. Here 
again is a significant increase. In the first place, it is substantial evidence 
of the assertions already made concerning the relations of the item of local 
tax and state aid in rural districts. In the second place, it shows that 

12 Preston Times, Thursday, May 11, 1916. "The people of the Model School north of town met 
Friday evening and deliberately threw away good money, — that is a majority of them did, the minority, 
who knew better, were voted out and helpless. The proposition was to associate with the Agricultural 
Department of the Preston High School and they spurned it, cast it out as something unclean. The fact 
that the district now receives $150, special state aid; $90 from the Preston District for Model School pur- 
poses; $70 apportionment, and could receive $50 by associating, while it pays into the state treasury only 
$62.90, did not affect the result; a net balance of $298.90 was no argument at all, — to those who would be 
convinced. The ultimate result of this incomprehensible bull-headedness is the loss of the $50 which it 
could have received by associating; a probable loss of its first-grade standing and the certain loss of the 
$90, by reason of its selection as a Model School. Incidentally the Preston District is deprived of $200 
for Agricultural instruction and perhaps the abandoning of the Department altogether as we can not for 
long afford to bear alone an expense by which we are only indirectly benefited. The Model School district 
was given an opportunity to get something worth while absolutely without additional cost and refused it. 
Those responsible can now repent at leisure." 



STATE AID TO PUBLIC SCHOOLS 79 

special state aid is the important factor in this increase of the figure of 
correlation. It must be, since no other condition has been changed from 
the conditions of all the 1,011 districts. In the third place, it shows that 
the current fund is equivalent to state aid in its general effect upon rural 
districts. If it were not, the correlation figure for the 1,011 districts 
would not be so large. For the state to pay a district $5.30 for each and 
every child attending a total of forty days during the year is the same as 
for it to pay that sum for over ninety-nine per cent of all those who enroll. 13 
The low limiting condition of forty days attendance tends to approach 
no condition at all. In this particular then, the current fund receipts 
tend to act in a manner similar to that of the special aid to rural schools. 
These results show conclusively that local endeavor among the con- 
stituency of the rural schools has a marked tendency to decrease as the 
state assists by special financial aid. This is a fact of tremendous signif- 
icance. If the fifteen months' work of the Education Commission and 
this whole study brought forth nothing else, the whole cost involved would 
be many times made up to the state should this one fact be made the basis 
of action in distributing aid. One difficulty in attaining the desired goal 
is that appropriations for these funds have not been settled according to 
educational needs or expected results. Intelligent laymen recognize this 
fact. 

The Dawson, Minnesota, Sentinel darkly intimates that dire things are to 
happen to those members of the legislature who succeeded in preventing the divi- 
sion of a million dollars among the rural schools of the state. 

The Sentinel also resents the tendency of the press to speak of this plan as a 
"Pork Barrel" proposition. It denounces as inconsistent the appropriation of mil- 
lions for the University and Normal schools, and denial of an extra million to the 
rural schools, "which educate half a million children every year, and furnish ninety- 
nine per cent of the people all the training for citizenship they ever receive." 

The fact that the University and Normal schools are purely state institutions, 
while the common schools are local institutions, does not seem to have occurred to 
the Sentinel as important. Its reasoning points to a theory that the state should 
raise taxes enough to pay for all the schools, though state control of the local schools 
would doubtless be resented. 

Such arguments as these miss completely the purpose of state aid to looal schools. 
This aid is given as a stimulus to better work. It is conditioned on local perform- 
ances of certain things, — quality of teaching, length of terms taught, number of 
pupils, and so on. 

When state aid becomes merely a means of maintenance and of lifting from the 
various school districts their financial burdens, it misses its purpose. The distri- 
bution of an extra million among the rural schools, it seems to us, was properly 
characterized as a "Pork Barrel" proposal. It was not intended for the good of the 
schools, but for the relief of local tax payers. Its killing was one of the few good 
things the legislature did. 14 

" See table 35. 

14 Editorial in the Minneapolis Journal, May 3, 1915. 



80 



RAYMOND ASA KENT 



The second of the two correlations worthy of note is the one between 
teachers' monthly salaries and the number of days attended annually per 
pupil. The correlation figure is significantly large; and it is positive. 
Pupils go to school more days in a year in those districts where the teachers 
are paid the highest wages. This figure does not tell why the fact is 
true. It merely tells the fact, and is in itself proof that there is a strong 
tendency for the two facts to accompany each other. 

The significance of the presence of the two above relations is equalled 
in importance only by the lack of those relations one would naturally 
expect but does not find. There is no indication that state aid, even in 
causing fulfillment of the minimum requirements for its bestowal, has 
made any difference in the number of days a pupil attends school in a year. 
We do know, on the other hand, that the well paid teacher and long at- 
tendance tend to go together. Does state aid raise teachers' salaries? 
Not so far as we can discover. Neither directly, then, nor indirectly, 
has this aid any apparent result in causing country children actually to 
spend more days in the schools. One naturally asks where it does count. 
The facts discovered answer "to no small degree, in lessening the local 
tax." We may be quite as much surprised to discover that high taxes 
and high salaries are not coexistent. Such is the truth, however, in spite 
of the fact that increased salaries seem to account in a large part for great 
increase in the total annual cost of these schools. 



TABLE XLVII 

Increase in the Number of Schools Having a Total 
Annual Enrollment of Less than Ten Pupils Each 





Number of 


Per Cent Increase 


Year 


Schools 


over 1903-04 


1903-1904 


189 




1904-1905 


228 


20.6 


1905-1906 


237 


25.4 


1906-1907 


252 


33.3 


1907-1908 


258 


36.5 


1908-1909 


278 


47.1 


1909-1910 


335 


77.2 


1910-1911 


346 


83.0 


1911-1912 


360 


85.2 


1912-1913 


373 


97.3 



The Small Rural School 

In the course of this part of the study it was accidentally discovered 
that there are in this state a large number of schools with remarkably 
small annual enrollments, each school enrolling less than ten pupils indeed, 
during the whole year's session. A review of the last few years shows a 
great increase in the number of these small schools. The biennial reports 



STATE AID TO PUBLIC SCHOOLS 81 

of the state superintendent of education show that the number of schools 
enrolling less than ten pupils increased over ninety-seven per cent between 
1903 and 1912. This is brought out more clearly in Table XLVII and 
Figure 5. 

This table reads: In the school year 1903-04 Minnesota had 189 rural 
schools, each enrolling a total of less than ten pupils. In 1904-05 the 
number of such schools in the entire state was 228, an increase of 20.6 
per cent over the number in 1903-04; in 1904-05 the number was 237, an 
increase of 25.4 per cent over 1903-04; etc. 

The increase in the number of these schools between 1903 and 1912 is 
almost twice the proportional increase in the next larger enrollment-school 
reported. Schools enrolling between ten and twenty pupils have increased 
only a little over fifty-seven per cent in the same period of time. 



TABLE XLVIII 

Increase in the Number of Schools Having a Total 
Enrollment of Ten to Twenty Pupils Each 





Number of Schools 


Per Cent Increase in 


Year 


Enrolling 
10 to 20 Pupils 


Number since 1903 


1903-1904 


1,204 




1904-1905 


1,294 


7.4 


1905-1906 


1,369 


13.7 


1906-1907 


1,467 


21.8 


1907-1908 


1,621 


34.6 


1908-1909 


1,703 


41.5 


1909-1910 


1,834 


52.3 


1910-1911 


1,911 


58.7 


1911-1912 


1,802 


49.6 


1912-1913 


1,896 


57.4 



The smallest school seems to persist more in the very old, or in the new, 
sparsely developed states. Virginia, Maine, Ohio, Iowa, and North Dakota 
illustrate these two types. 15 But Minnesota can not be called old, neither 
as a state is it undeveloped or scantily populated. Special state aid has 
been given to rural schools in the state since 1899, when 457 one-room 
schools were aided. In 1912 over 4,400 received such aid. 16 In Indiana, 
the township trustees may "discontinue and temporarily abandon all 
schools at which the average daily attendance during the last preceding 
year has been fifteen pupils or fewer"; they "shall 17 discontinue and tempo- 
rarily abandon" schools whose daily average attendance has been twelve 
or less, though a majority of the patrons of the district may by petition 
reopen either. 18 



18 Gillette, Constructive Rural Sociology, 236, 237 
no. 8 p. 26. 1913. 

16 Eighteenth Biennial Report, Stale Superintendent of Public Instruction, 13 

17 Italics are the author's. 

is Revised Statutes of Indiana, 1914 sec. 6422. 



Also United Slates Bureau of Education Bulletin 
See also Appendix. 



100 ?•_ 



Figure 5 

Increase in ten years in schools enrolling 
less than ten pupils 



70 y>_ 



60%_ 



50>_ 




i i i i 



1903 '4 '5 '6 7 '8 -9 lb '11 12 



STATE AID TO PUBLIC SCHOOLS 



83 



This condition presents a very serious situation. There ought to be 
many less ten-pupil schools in the entire state of Minnesota, even though 
the state is not yet fully developed. That this type of school has practically 
doubled in numbers in ten years and is near the four hundred mark is a 
condition that should demand immediate attention. 

There are four possible reasons for this increase. These reasons are: 
I. Development of previously unsettled portions of the state into 

sparsely settled regions. 
II. Shrinkage of rural population in previously developed portions of 
the state. 



TABLE XLIX 

Per Cent of Changes in Population in Thirty-four 
Counties of Minnesota between 1900 and 1910i» 



County 


Total 
Decrease 


Rural 
Decrease 


Blue Earth 


Per cent 
9.1 
.5 
9.3 
1.6 
9.5 

9.1 

* 

* 

7.2 

2.0 

* 

8.0 
4.6 
.02 

4.1 

* 

1.3 
4.4 
.02 

2.7 

* 

* 

2.4 
.6 
1.7 
7.8 
2.3 
4.9 
4.1 
2.0 
8.8 
1.0 
6.4 
3.7 


Per cent 
12.4 


Carver 


.5 


Dodge 


9.3 


Douglas 


4.0 


Faribault 


9.5 


Fillmore 


9.1 


Freeborn 


7.2 


Goodhue 


4.3 


Houston 


7.2 


Jackson 


2.0 


Kandiyohi 


1.2 


Le Sueur 


8.0 


McLeod 


4.6 


Mahnomen 


.02 


Meeker 


4.1 


Mower 


7.0 


Murray 


1.3 


Nicollet 


5.0 


Norman 


.02 


Olmsted 


10.0 


Otter Tail 


.4 


Polk 


7.4 


Renville 


2.4 


Rice 


9.0 


Scott 


1.7 


Sibley 


7.8 


Steele 


4.3 


Stevens 


4.9 


Swift 


4.1 


Wabasha 


6.3 


Waseca 


10.7 


Watonwan 


1.0 


Winona 


7.2 


Wright 


3.7 







* Increase of less than 5 per cent. 
'» Thirteenth Report of the United States Census 2 :962. 



84 RAYMOND ASA KENT 

III. Migration of rural school population to village or urban school 
enrollment. 

IV. Special state aid to rural schools. 

I. Let us consider the first possible influence, that of populating pre- 
viously undeveloped parts of the state. Very fortunately for this study 
the decade included in the last report of the Federal Census overlaps seven 
of the years above included. The census covers the years between 1900 
and 1910, and this study, the school years 1903-04 to 1912-13 inclusive. 
Comparisons of items covering these two periods can thus be made and 
conclusions can be drawn concerning items or factors present throughout 
the two periods. 

According to the census report, thirty-four, or 43 per cent, of the counties 
in Minnesota decreased in rural population in the decade between 1900 
and 1910. 

Nineteen of these thirty-four, or 24 per cent of all the counties, decreased 
in total population. Of the remaining forty-five counties, six showed, in 
spite of rural shrinkage, slight increases in their respective totals. Above 
is an alphabetical list of the thirty-four counties and the percentages of 
changes both in total and in rural population for each county. 

TABLE L 

Distribution of Per Cent of Decrease in Population in 

Thirty-four of the Counties of Minnesota 

between 1900 and 1910 



Per Cent of Decrease 


Number of Counties 


Less than 1 ner rent 


4 


1 to 


1.99 


4 


2 " 

3 " 


2.99 

3.99 


2 
1 


4 " 


4.99 


7 


5 " 


5.99 


1 


6 " 


6.99 


1 


7 " 


7.99 


6 


8 " 


8.99 


1 


9 " 


9.99 


4 


10 " 

11 " 


10.99 

11.99 


2 



12 " 


12.99 


1 









Twenty-seven counties in the state show more or less noticeable in- 
crease in the number of less-than-ten-pupil schools between 1903-4 and 
1912-13. Below is an alphabetical list of these counties showing: 

First, increase in number of smallest division of rural schools. 

Second, per cent of decrease or increase of rural population in the 
counties. 



STATE AID TO PUBLIC SCHOOLS 



85 



TABLE LI 

Changes in Rural Schools and in Rural Population in Twenty-eight 
Counties of Minnesota between 1900 and 1910 





Number of 10 


-pupil Schools 


Changes in Rural Population 


County 


1903-04 


1912-13 


from 1900 to 1910 


Blue Earth 


6 

1 
3 

10 
2 

11 
4 

2 
2 
2 
3 

2 
7 
2 
1 
1 
2 
2 



6 

10 
5 


11 

4 

. 10 

16 

12 
5 

12 

10 
4 
8 

14 
4 
7 
5 

12 

12 
9 
4 
3 

13 
3 
5 
5 
8 
8 

15 
8 


Per cent 
minus 12.4 


Clearwater 


plus 50. 
" 5. 


Cottonwood 


Crow Wing 


" 15. to 25 


Dakota 


" 5. 


Dodge 


minus 9 . 3 


Fillmore 


" 9.1 


Goodhue 


4.3 


Grant 


plus 5 . 
minus 7 . 2 


Houston 


Hubbard 


plus 25. to 50 
minus . 2 


Jackson 


Le Sueur 


8. 


Marshall 


" .02 


Morrison 


plus 5. to 15 
minus 7.0 


Mower 


Norman 


.02 


Otter Tail 


.4 


Pine 


plus 5 . 
minus 7 . 4 


Polk 


Red Lake 


plus 15. to 25 
5. 


Rock 


Sherburne 


" 5. to 15 


Todd 


5. 


Waseca • 


minus 10.7 


Wabasha 


6.3 


Winona 


" 7.2 







This distribution shows the relation between change in percentage of 
rural population and increase of less-than-ten-pupil schools. It is true that 
Hubbard and Crow Wing counties, with marked population increase, 
experienced a large growth in the number of such schools. But Morrison, 
Cottonwood, Rock, and Todd, each with small population growth, gained 
markedly in the same size schools; while Dakota, with little gain, but a 
well settled county, has almost as many such schools as either of the first 
two. 

We must conclude, then, that if opening new land and settling the 
frontier part of the state has had any influence in the increase of the prac- 
tical doubling in the number of less-than-ten-pupil schools in the last 
decade, that influence has been meager and localized. 

II. What influence upon the number of these schools has shrinkage 
of rural population had? Table LII shows that this factor has had an 
even less marked influence than population increase. No county had lost 
in 1912 as much as thirteen per cent of the rural population it had ten 
years before, while five had gained more than this in the same period. 



86 



RAYMOND ASA KENT 



All but four of the decreases occurred south of a horizontal line drawn on 
the map through Minneapolis. Of those four, one was seven per cent, 
but no one of the rest was as much as one per cent. The population 
shrinkage has then been small, and has occurred almost altogether in the 
thickly populated counties. 

These facts force us to conclude that the factor of shrinkage in rural 
population does not materially assist in explaining the great increase in 
small schools. 



TABLE LII 

Table LI Arranged as Array of Percentage of Rural Population 

Changes 





Population Changes 




County 


Increase 


Decrease 


School Changes 


1. Clearwater 


Per cent 

50 

25 to 50 

15 " 25 

15 " 25 

5 " 15 

5 " 15 

5 

5 

5 

5 

5 

5 


Per cent 

.02 

.02 

.2 

.4 
4.3 
6.3 
7.0 
7.2 
7.2 
7.4 
8.0 
9.1 
9.3 
10.7 
12.4 


to 4 


2. Hubbard 


2 " 14 


3. Crow Wing 


3 " 16 


4. Red Lake 


2 " 3 


5. Morrison 


2 " 12 


6. Sherburne 


" 5 


7. Cottonwood 


1 " 10 


8. Dakota 


10 " 12 


9. Grant 


" 4 


10. Pine 


1 " 3 


11. Rock 


" 5 


12. Todd 


" 8 


13. Marshall 


" 5 


14. Norman 


2 " 9 


15. Jackson 


2 " 4 


16. Otter Tail 


1 " 4 


17. Goodhue 


4 " 10 


18. Wabasha 


10 " 15 


19. Mower 


7 " 12 


20. Houston 


2 " 8 


21. Winona 


5 " 8 


22. Polk 


2 " 13 


23. Le Sueur 


3 " 7 


24. Fillmore 


11 " 12 


25. Dodge 


2 " 5 


26. Waseca 


6 " 8 


27. Blue Earth 


6 " 11 







III. The third possible reason mentioned was migration of rural school 
population to urban school enrollment. Above is shown the number of 
grade schools and the number of high schools in each of the twenty-seven 
counties in discussion in 1903, and the number of new schools added in 
each county by 191 2. 20 

20 A school transferred from the list of graded to high schools within this time is not counted as new if 
it was on the graded list in 1903. Only schools named in 1912 that were not named in either list in 1903 
are counted in the list of those added, — that is. as new schools. 



STATE AID TO PUBLIC SCHOOLS 



87 



TABLE LIII 
Changes in Schools by Counties 



Counties 


Graded Schools | High Schools 


Schools Added 

not Later than 

1912 


Changes in 


1903 


1903-1912 


Crow Wing 





1 





3 to 16 


Clearwater 











" 4 


Dodge 


3 


4 





2 " 5 


Houston 


3 


1 





2 " 8 


Hubbard 


1 




2 






2 " 14 


Jackson 


2 " 4 


Le Sueur 


2 


2 





3 " 7 


Marshall 


1 


1 





" S 


Pine 











1 " 3 


Red Lake 






1 
3 






2 " 3 


Waseca 


6 " 8 


Goodhue 





4 


1 


4 " 10 


Mower 


3 


3 


1 


7 " 12 


Winona 





2 


1 


5 " 8 


Cottonwood 


2 


1 


2 


1 " 10 


Dakota 


1 


2 


2 


10 " 12 


Polk 


2 


4 


2 


2 " 13 


Rock 





1 


2 


" 5 


Wabasha 


1 


3 


2 


10 " 15 


Blue Earth 


2 


3 


3 


6 " 11 


Fillmore 


2 


5 


3 


11 " 12 


Grant 





2 


3 


" 4 


Morrison 





1 


o 


2 " 12 


Norman 


2 


1 


3 


2 " 9 


Otter Tail 


2 



3 
1 


3 
3 


1 " 4 


Sherburne 


" 5 


Todd 


3 


1 


3 


" 8 



But what of the graded and high schools already existing? Did they 
receive any increase in the number of children from rural districts? 

We are able to give only a partial answer. 

Sixteen schools were transferred from the graded to the high school 
list in these years and a total of thirty-four near schools were added. In 
no county was there any addition where there had been neither a graded 
nor high school before. 

Three counties added 1 school 
Five " " 2 schools 

Seven " " 3 " 

The distribution of these additions does not indicate any clearly marked 
relation between the above additions and the increase in small rural 
schools. The annual reports of the state inspector of high schools divide 
the high school enrollment between those residing in the district and those 
enrolling from outside. The following figures show what per cent have 
come from outside districts for nine of the years under discussion. 



RAYMOND ASA KENT 

TABLE LIV 
Per Cent of High School Enrollment from Outside** 





Per Cent of Outside Enrollment 


Years 


(Median) 


1904-05 


14.2 


1905-06 


14.3 


1906-07 


14.3 


1907-08 


14.6 


. 1908-09 


15.2 


1909-10 


16.0 


1910-11 


16.4 


1911-12 


16.2 



Similar figures are not available for graded schools. 

From the above data one is not justified in drawing the conclusion 
that the presence and increase in the number of high schools may not have 
been a factor in the number of small rural schools. On the other hand, 
one would be far from justified in concluding that the small rural school 
situation for the state has been materially affected by this factor. 

IV. The fourth possible factor named as influencing this situation is 
state aid. There are two reasons why this appears as even a possibility. 
In the first place, we have already found out that state aid to the single- 
room school tends to reimburse the tax payers of the district for running 
their school. They accept the gift, pay no perceptibly higher salary to 
their teacher, have no more days attendance to the credit of their register, 
and have a smaller school tax to pay. The implication is strong that the 
school is about the same kind of a school as before the state helped, only 
the patron pays a little less for its up-keep. 

But secondly, the small school is an expensive one, per capita. To 
offset this expense there must be some counteracting incentive toward its 
continued maintenance. A part of such incentive is present in the very 
conservatism of the patron. 22 He wants things to go on as they have gone 
in the past. Add to this conservatism the knowledge by the conservatist 
that the state for a slight consideration stands ready to pay him to keep 
up old conditions, and the incentive is not only fostered, but the rural 
patron feels that his commonwealth sanctions his stand and gives him, so 
far as he is concerned, as high an endorsement as he can receive. 

The influence of the state aid upon the small school as compared with 
the typical rural school of the state is shown more clearly by a compari- 
son of items in the following table, based on 1,185 schools from the four- 
teen counties included in this study. 

21 This is for all high schools receiving state aid. Data are computed from annual reports of state 
high school inspector. 

22 See Rural Life and Education, 167, et seq. 



STATE AID TO PUBLIC SCHOOLS 



TABLE LV 



Schools Having an 
Enrollment of 


I 

Number of 
schools 


II 

Enrollment 


III 

Attendance 

per pupil 

per year 


IV 
Cost per 

pupil 
per day 


V 

Special 

school 

tax 




46 
282 
478 
281 

98 


7 
IS 
24 
32 
43 


Days 
96.5 
95. 6 
101.7 
104.0 
100.1 


50.7c 
30.4c 
22.3c 
17.8c 
13.4c 


Mills 
7.6 




8.1 


From 20 to 30 pupils 


5.8 




6.3 




4.9 







The figures in Column I are absolute. The figures in Columns II, 
III, IV, and V are medians. The meaning of the table becomes clear when 
we read, — The schools enrolling less than 10 pupils are 46 in number; 
they have a median enrollment of 7 pupils each; their pupils attend 96.5 
days each during the year; each pupil costs his district 50.7 cents each 
day )he attends and each district levies a special school tax of 7.6 mills 
on its assessed valuation to maintain its schools. 

4-28 Schoo/S 



282 Schools 



j-6 Schoo/S 



281 Schools 




<?$ 6choo/S 



Enrollment 10- jouzo zot»$o 30**40 4o-f- 



Figure 6 
Distribution of 1,185 rural schools according to annual enrollment 



90 RAYMOND ASA KENT 

The table discloses several interesting features. Column I shows quite a 
normal distribution of schools among the groups according to enrollment. 
This fact is shown even more clearly by Figure 6. 

The "20 to 30" school is clearly the typical school. 

The less-than-ten-pupil school costs about two-and-one-half times per 
pupil what the typical school costs. In the first group of schools, seven 
pupils cost their district $2.50 each, every week school is open; in the 
second group of schools twenty-four pupils cost their district $1.00 each 
per week. 

The changes that have come into rural society and institutions in the 
past fifty years have been inimical to the rural institutions acclimated to 
former conditions. "Studies of the rural church problems have been made 
in the New England states, New York, Pennsylvania, Ohio, Illinois, 
Georgia, and other states. Everywhere the results are about the same. 
At the Michigan Rural Life Conference in 1911, it was stated that there 
were 10,000 dead rural churches in Illinois; 10,000 more about to die; 
and 500 already abandoned." 23 It is well asserted that rural schools 
would be suffering the same sort of hardship were it not for the resusci- 
tating effect of state aid. 24 This is true of the rural situation as a whole. 
It is true to an intensified degree with the schools that are nearest the 
border of extinction through the operation of new social, industrial, and 
economic factors. 25 

After the consideration of the evidence offered, we may reasonably 
conclude that development of new parts of the state has doubtless been 
responsible for a few small rural schools; that shrinkage in rural popula- 
tion may have been responsible for a few, but if so, for a very few; that 
migration of school children from country homes to village schools has 
doubtless depleted country districts and assisted in some measure in 
making the small rural school; but as great a single factor as any has been 
the financial assistance which the state renders on conditions that tend 
positively toward the continuance of such schools. 

Summary 

The typical rural school of Minnesota is open 7.7 months each year, 
enrolls between 20 and 30 pupils, who attend 97 . 7 days each. Each pupil 
costs his district about 23 cents each day he attends school, 8.8 cents of 
which is paid by the state, while the district levies a tax of 1 . 7 mills on 
its true valuation to meet its share of the expense. The teacher in this 
school receives a wage of a little more than $51 per month. 

23 Rural Life and Education ch. 3. 

21 Ibid., ch. 4. 

25 Ibid. See also Constructive Rural Sociology. 



STATE AID TO PUBLIC SCHOOLS 



91 



Effects of State Aid 

State aid to rural schools has probably increased the length of the 
school year to some extent, but not so much as one is led to suppose by a 
cursory survey; it has not resulted in any increase in the number of days 
that children attend these schools; it has not increased enrollment; it has 
not been a factor in increasing teachers' salaries in these schools. Special 
state aid and current fund together have definitely resulted in the state's 
paying over two fifths of the cost of up-keep of the districts receiving such 
aid and by such reimbursement have resulted in the districts' being con- 
tent to maintain educational standards little or none above the ones pre- 
viously maintained; they have made the districts willing to accept state 
aid as a pecuniary endorsement of these educational standards and as a 
financial reimbursement to their own district treasuries. By encouraging 
the maintenance of the dwarf rural school, by having attached to its be- 
stowal no conditions regarding enrollment, local taxation, local assessed 
valuation, and with extremely imperfect possibilities of checking whether 
the conditions presumed to be met have been met, state aid as it is at 
present distributed to the rural schools of Minnesota acts positively as a 
barrier to the advancement of the best interests of these schools and their 
patrons. 26 It is educationally pauperizing the rural schools of the state. 



TABLE LVI 
Rural School Summary 



Item 


Median 


QUARTILES 




97.9 days 


81 days 


112 days 


Cost per pupil dav 


22.9 cents 


1 7 . 08 cents 


31 .86 cents 




8 . 8 cents 


6 . 2 cents 








Per cent state aid is of total annual income 


37.2 per cent 27 
46 per cent 28 


25. 7 per cent 


45 . 5 per cent 




1 . 7 mills 27 
1 . 4 mills 28 


1 . 1 mills 27 
.9 mills 28 


1 . 58 mills 27 




2 . 00 mills 28 




$2,195 


$1,321 


$3,273 








7 . 7 months 


6.9 months 


7.8 months 




$51.14 


$45.63 


$56.30 







26 Cf. Betts, New Ideals in Rural Schools ch. 1. 

27 Item for 1,011 districts. 
25 Item for 461 districts. 



CHAPTER VI 

SPECIAL AID TO HIGH, GRADED, AND RURAL 
SCHOOLS COMPARED 

In Chapters III, IV, and V, the facts for high, graded, and rural dis- 
tricts, respectively, have been set forth. All the factors discussed have not 
been identical for all the three groups. Seven, though, have been studied 
for each group of schools. They have to do with: (1) length of the school 
year; (2) attendance; (3) unit cost; (4) unit aid; (5) gross proportion of 
aid; (6) local school tax levy; and (7) assessed valuation. 

The purpose of this chapter is to make direct comparisons among the 
three classes of schools. This will be done first for each of the above 
named items: (1) by reproducing from the three preceding chapters the 
medians and quartiles of the distributions for each item, and (2) by show- 
ing graphically on the same base the complete (100 per cent) distribution 
of each item for each of the three groups of schools. 



LENGTH OP 


TABLE A 
SCHOOL YEAR IN MONTHS 


School 


Median 


Quartiles 


High 


9 
9 

7.7 


* 
6.9 


* 


Graded 


* 


Rural 


7.8 







* Negligible in amount. 

No attempt is made to determine variations from the central tendency 
among either high or graded school systems in the length of the school 
year. The law requires schools receiving special aid in either of these 
groups to be in session at least nine months. 1 Very few have longer ses- 
sions. All rural schools classed as semi-graded, and- Classes A and B of 
the common schools must have eight months of school. 2 Those in Class 
C may have seven months. 3 The general conditions among rural schools 
as compared with high and graded seems to be that they have from one to 
two months less of school per year than either high or graded districts. 
About 75 per cent of the rural schools have at least eight months of school 
but only a little more than 19 per cent have as much as nine months, or 
what is required of the high and graded schools. 

The amount of assessable property which a district possesses for every 
child within its schools represents the district's dynamic resources for 

» See Chapter 2. 

2 Ibid. 

3 Ibid. 



STATE AID TO PUBLIC SCHOOLS 



93 



educating that child. The only place where such a statement should be 
modified for the sake of comparative justice would be in large cities. Since 
none of them are included in these calculations this is a true statement 
for the groups of districts involved. 

TABLE B 
ASSESSED VALUATION PER ENROLLED PUPIL 



School 


Median 


QUARTILES 


High 


$1,186 
1,254 
2,195 


$ 937 
1,034 
1,321 


$1,610 


Graded 


1,582 
3,273 


Rural 



The total taxable resources of one district may be considerably higher 
than those of another. The only fair method of comparing the two is to 
measure each in terms of the potential draw upon the resources. The num- 
ber of children actually presenting themselves for the public schools to 
educate is one measure of such draw. 

30?._ 



2C%_ 



10-/- 




Figure 7 
Assessed valuation per enrolled pupil 



94 RAYMOND ASA KENT 

When the three groups of schools are compared on this basis most 
striking facts appear. The financial resources of these three groups are in 
reverse order to the ranking type of schools they represent. The valua- 
tion in rural districts puts at their disposal almost twice the median tax- 
able property for every child in their schools that high school districts 
possess. The lowest quartile of rural valuation is higher than the median 
for either high or graded districts. The assessed valuation per pupil in 
graded school districts is less than $100 more than such valuation in high 
school districts; it is, however, $900 less than such valuation in rural dis- 
tricts. The variability in this item is considerably greater among high 
and graded than among rural schools. 

The median valuation for rural districts might be less if a larger number 
of districts had been taken. It does not seem, though, as if that change 
would materially affect the figure. The selection made was a random 
selection among the 1,011 districts in the order of the numbers assigned 
them in their respective counties upon their organization. Here is basis 
for a complete reversal of the judgment that rural districts are economically 
not so able to support good schools as municipal and village corporations. 
The truth is that they are on the whole twice as able in Minnesota to 
spend any given amount, for every child attending their schools, as are 
the two other groups here represented. 

Compared with the other groups of schools, rural schools are by far the 
wealthiest in financial resources for educative purposes. Yet, as we have 
already seen, the annual length of possible school attendance which they 
offer their children is the shortest. 



ATTENDANCE PEP. 


TABLE C 
PUPIL IN DAYS PER YEAR 


School 


Median 


QUARTILES 


High 


147.4 

138.7 

98.0 


142.4 

128.6 

81.0 


154.4 


Graded 


147.2 


Rural 


112.4 



Inasmuch as the rural school year is shorter than the year in either of 
the other classes of schools we would expect the children of the rural schools 
to attend fewer days each per year. The above comparison shows such 
expectation to be correct. But though high and graded districts have 
practically the same length of school year, their children do not give the 
same response of attendance. The median attendance of children in high 
school districts is 62 per cent of the total possible attendance, 180 days; 
in graded, it is 77 per cent; and in rural, it is 64 per cent of the median 
length of the school year. These per cents represent a measure of re- 



STATE AID TO PUBLIC SCHOOLS 



95 



sponse to educational privilege offered. Since the privileges are different 
64 per cent can not be compared absolutely with 77 per cent or with 82 
per cent. If the corresponding quality of educational privilege now given 
to the groups responding 82 per cent were given to the groups responding 
64 per cent the latter might rise above 82 per cent. There is no basis 
therefore for an absolute comparison of the measure of response to the 
same thing or to equivalent things. 



20*/-_ 



10°A 




30 40 50 60 70 80 90 100 110 120 130 l4o 150 160 170 



Graded 



Hi oh 



Figure 8 
Pupil attendance in days per year 

On the other hand this is a definite measure of school attendance, 53 
per cent of the rural schools have an average attendance of less than 100 
days per pupil. This is a shorter attendance than any single high school 
district reports and less than all except one half of one per cent (one district) 
among the graded schools, report. That is to say, the child attending in 
a high or graded school district has double the chance of being at school 



96 



RAYMOND ASA KENT 



100 days a year that the child attending the rural school has. The cor- 
responding chances for attending 120 days are not far from as great. Less 
than 16 per cent of the rural districts have such attendance, while 93 per 
cent of the graded and 99 per cent of the high have it. 

It is quite as interesting to note that the highest extreme of rural school 
attendance exceeds any graded district and practically equals the best 
high school district. 



TABLE D 
COST PER PUPIL PER DAY IN CENTS 


School 


Median 


QUARTILES 


High 


25.7 
23.0 
22.9 


21.5 

19.4 
17.1 


29.9 


Graded 


28.7 


Rural 


21.9 







The actual time-unit cost rank is in the order corresponding to the 
types of schools. At the same time there are small differences in this item 
among the schools. There is practically no difference between the median 
cost for graded and for rural schools. The range of variability is even 
more striking. Costs in rural schools reach the highest extreme both in 
the quartile and in actual cases. There are several possible reasons for 
this condition. It is but consistent with what has already been shown to 
suppose that small enrollment plays its subtle part in high unit cost in 
rural schools. 

The cost is less than 30 cents a day in 70 per cent of the rural districts, 
in 75 per cent of the high, and in 80 per cent of the graded. It is less than 
20 cents in 38 per cent of the rural, in 14 per cent of the high, and 21 per cent 
of the graded. Though rural schools have the greatest variability they 
also have the most strongly marked central tendency. 



AID PER 


TABLE E 
PUPIL-DAY 


IN CENTS 




School 


Median 


QUARTILES 


High 


7.5 
7.1 
8.9 


6.1 
6.4 
6.2 


9.8 


Graded 


8.4 


Rural 


9.5 



A very interesting item in this connection is how state aid, computed 
on the time or attendance unit base, compares with the actual cost on the 
same basis. We are at once struck with the lack of conformity in this 
respect. Rural districts receive a median amount of the most per unit, 
more even than high school districts and the quartiles reinforce the story 



30 



20 



1.0 




5 10 20 30 40 50 60 70 80 9'0 100 J10 PO ljo 

" ' ' ' — ' "Rural 

- Bffb 



Figure 9 
Cost per day of attendance per pupil 



30% 



20v-__ 



10°A__ 




5 10 15 20 25 30 35 Vo 45 

High 



"Rural 
-Graded 



Figure 10 
Aid per day of attendance per pupil 



STATE AID TO PUBLIC SCHOOLS 



99 



which the medians tell. Graded and high schools are close together with 
the high in the lead both in median aid received and in the variability of aid. 

In 25 per cent of the rural districts the aid is 10 cents or more. Twenty- 
four per cent of the high school districts and 11 per cent of the graded 
districts receive similar aid. 

These findings should be compared with those of what proportion 
state aid is of the total annual income of the district. 

TABLE F 
PER CENT OF STATE AID PER YEAR 




In the per cent of total maintenance income which is received from 
state aid, high and graded school districts are very similar both in central 
tendencies and in quartiles. Again they are outdone by rural districts. 
Among the 1,011 districts this proportion is between one sixth and one 
seventh more than for either of the other groups. But in this item com- 
parison should be made rather with the 461 districts. They receive more 
than one and two fifths what high school districts do, and almost that 
many times what the graded districts receive. It Hi 

Of the 1,011 rural districts one fifth receive from the state 50 per cent 
or more of their annual income, and more than one third of the 461 districts 
receive a similar share. Only between 4 per cent and 5 per cent of the 
graded and less than this proportion of the high school districts are given 
as much. Twenty-two per cent of the 1,011 districts receive less than 25 
per cent from the state. Nearly 27 per cent of the graded and nearly 30 
per cent of the high school districts receive less than 25 per cent. Between 
75 per cent and 80 per cent of the 461 districts receive more than one half 
the amount they themselves contribute. Only 49 per cent of the graded 
schools and 55 per cent of the high schools receive as much. 





LOCAL 


TABLE G 
TAX LEVY IN MILLS 




School 


i 

Median 


Quartiles 


High 

Graded 


6.3 
5.1 
1.7 
1.4 


5.0 

3.9 

1.1 

.9 


7.8 
6.0 


Rural (1,011) 


1.6 


(461) 


2.0 







100 

20 % 



RAYMOND ASA KENT 



I % 




5 10 15 20 30 40 5b 60 7*0 80 90 100 

Rut a! . — i 1 — , ■ (f or 10U districts) 

Cn^ded 

H, g b 

Figure 1 1 
Per cent that state aid is of total maintenance income 

With cost per attendance-day less, with the days of attendance less, 
with the aid for every such day more, and with taxable resources almost 
twice that of the other districts, rural districts ought not to have high tax 
levies. The above table shows clearly that they do not. Both this table 
and Figure 11 loudly acclaim the extremely low rural school tax. The 
rural schools' year is less than eight ninths of the year of all the other 
districts ; their resources are twice as great ; but their taxes are one third 
and less than one fourth, respectively, of what graded and high school 
districts' taxes are. Their lowest quartile is less than one half the lowest 
quartile of the grade school levies and less than one third the lowest quar- 
tile of high school levies. 



40^ 



30% 




< 1 1 1 • 


10 


15 


H.gh — 






Graded -- 






"Rural 










Figure 12 
Local tax levy 



20 



25 



30 



102 



RAYMOND ASA KENT 



Among all the rural districts considered, 84 per cent have a tax amount- 
ing to less than 3 mills, while among the 461 districts 89 per cent have 
taxes corresponding. Only six high school districts (3 per cent of all) and 
12 per cent of the graded school districts have taxes as low. Ninety -seven 
per cent of the 1,011 districts and 99.2 per cent of the 461 districts levy 
less than 6 mills ; 30 per cent of the graded school districts and 47 per cent 
of the high school districts have taxes above such a levy. Finally, 44 per 
cent of the 1,011 districts levy a two-mill tax, while 73.7 per cent of the 
461 districts levy less. This is less than the tax of any single high school 
district. Nearly three fourths of the rural districts that receive special 
state aid levy a tax less than the lowest tax levied by any of 197 high school 
districts : 



TABLE LVII 

SUMMARY 

Comparison of Identical Items among High, Graded, and Rural Schools 

in Terms of the Medians 



School 


A 

Length 

of school 

year 


B 

Assessed 
valuation 
per pupil 


C 

Yearly 

attendance 

per pupil 


D 

Cost per 

pupil-day of 

attendance 


E 

Aid per 

pupil-day of 

attendance 


F 

Per cent 

income from 

state aid 


G 

Tax 
levy 


High 

Graded 

Rural 


Months 
9 
9 
7.7 


$1,186 
1,254 
2,195 


Days 

147.4 

138.7 

98.0 


Cents 
25.7 
23.0 
22.9 


Cents 
7.5 
7.1 
8.9 


32.2 
33.0 
37.2* 
46.02t 


Mills 
6.3 
5.1 
1.7* 
1.4t 



* For the 1,011 districts, 
t For the 461 districts. 

In this list of seven common factors the pecuniary advantage is in 
favor of the rural districts as against the other schools in each of all the 
five items possible, that is in: (B) assessed valuation per pupil; (D) cost 
per pupil per day of attendance; (E) aid per day of attendance; (F) total 
per cent of income derived from state aid; and (G) tax levy in mills. The 
school year is the shortest and the number of days attended per pupil is 
the least among rural districts. 

On the basis of need and effort the rural districts are getting the lion's 
share of state aid. Rural districts have more to do with, and still do less 
for, their children than either of the other two groups of districts. The 
children of the rural schools, in spite of the financial ability of their dis- 
tricts, are offered less school opportunities per year, and take a smaller 
proportion of what is offered, than the children of the other districts. 
The actual schooling which rural children take costs a little less per time 
unit and is paid for in greater part by the state than the schooling taken 
by children in the other schools. Rural districts exert themselves much 
less to maintain their schools, yet in spite of this fact they are reimbursed 



STATE AID TO PUBLIC SCHOOLS 103 

far more by the state than other school districts. Very plainly state aid • 
bears no relation to local need, local effort, or local ability in rural dis- 
tricts, at least. 

From a consideration of these facts three fundamental propositions are 
evident : 

1. The rural districts, as a group, are nearly twice as able financially 
to provide educational opportunities for their children, as any 
other group of districts. 

2. In every feature of educational opportunity and advantage on which 
there is definite evidence, rural districts provide educational oppor- 
tunities greatly inferior to those offered by other districts. 

3. The rural districts receive in special aid from the state a very 
much larger per cent of their total income, than does either of the 
other groups of schools. 

Proposed Scheme for Distribution of State Aid 

The investigation so far has led to certain definite conclusions. On 
the basis of these conclusions the writer submits certain principles as a 
practical basis to govern the distribution of state aid. 

In stating these principles the writer recognizes that their application 
would be most efficacious under the administration and supervision of a 
State Board of Education possessing large executive powers and whose 
administrative functions should be exercised through an expert executive 
agent. 

I. General Principles 

1. All state aid should be given only upon definite recommendation of duly 
authorized state officials who are the executive agents of the state board. 

2. No aid should be granted to any district for any purpose before the state has 
duly inspected the work for which state aid is requested and has ascertained that work 
meriting state aid has been carried on for at least one year previous to the time that 
aid is granted. 

3. The state board should maintain a bureau to ascertain and to measure the 
results of the policy of state aid to public education. This bureau should seek con- 
stantly to discover undesirable or questionable results arising from the distribution of 
state aid and should suggest and devise improved methods for the distribution of 
such aid. 

4. The state board should have power: 

a. To set standards and stipulate conditions prerequisite to state aid, in all 
its forms. 

b. To appoint the necessary number of executive agents to insure the prop- 
er administration of the powers and duties of the board, and to direct 
the work of such officials. 

c. To direct the work of the Bureau of Investigation. 

d. To make individual grants of aid in all forms to districts, and for just 
cause to withhold the grant of any such aid. 



104 RAYMOND ASA KENT 

II. Principles to Govern State Aid to Elementary and Secondary 

Schools 

1. There should be a flat sum granted to every high and graded school, meeting 
the stipulated requirements of the state board. The basis of such aid should be the 
number of teachers actually employed, except that the aid for schools employing 
only one teacher should be upon the basis of the number of schools maintained. 

2. Every district maintaining high or graded schools should receive no additional 
state aid of any sort until it expends in a given year an amount per attendance unit 
in both its high and graded departments, equal to the median cost of such units 
among all schools of the same classification in the state; provided, that if, in order 
to raise such amount, a district should be obliged to levy a tax larger than the median 
tax among all schools of the same classification in the state, the state should refund 
to such district an amount equal to one half the income from the tax levy exceeding 
the median tax levy; and provided further, that should the tax levy necessary to 
raise the median attendance support be greater than that levied by three fourths of 
the districts in the same classification in all the state, then the state should refund 
to such district the whole of the amount raised by the second excess levy. 

3. The state should give aid on the basis of every properly qualified teacher 
having in charge not over fifteen children who are physically defective or who are 
retarded three or more years. It would be necessary for the state to define what 
constitutes a physically defective or a retarded pupil. 

4. Additional aid for consolidation should be granted on the basis of the unit 
cost of transportation of pupils actually conveyed. A consolidated school should 
be able to benefit also by any of the other aids provided by fulfilling the conditions 
prerequisite to the same. 

5. There should be no aid granted to any one-room school whose total annual 
attendance falls below two thousand days — except in the case of districts that can 
prove to the satisfaction of the State High School Board that in addition to having 
met all other prerequisites for state aid, consolidation is impossible, and the school 
population of the district makes it impossible for such districts' annual attendance 
to total two thousand days when the school is operated at least eight months. 

6. The State Constitution should be so amended as to allow the distribution 
of the permanent school fund income on the basis of attendance. If such amendment 
■can not be readily secured, during the time previous to its passage the number of days 
of attendance requisite for participation in this aid should be raised to one hundred. 



CHAPTER VII 
SPECIAL AID TO INDUSTRIAL DEPARTMENTS 

Some of the most puzzling questions connected with state aid to public 
schools arise in connection with the maintenance of special industrial 
departments. 1 When the Commission came to consider this problem they 
were confronted by a condition similar to that which they had found with 
respect to general aid to the three groups of schools. That is to say, 
although for some years generous aid had been granted to these several 
industrial departments, 2 it had not been granted on the basis of any specif- 
ically known or accurately determined amount of need. The two laws, 
as passed, were adapted to the solution of a real problem, but the limits 
of legitimate local demands were not known. No one knew the actual 
costs of the departments for which the laws were attempting to provide. 
This was no reflection upon anyone. Facts necessary for computing such 
costs were not at hand. The plan contemplated generous state aid for 
the work as it was planned, and by careful supervision attempted to check 
up the expenditures and thus obviate reckless and wasteful distribution. 

The few years' operation of these laws and maintenance of the special 
departments thus aided ought to help in finding out what expenditures 
should legitimately be. To find out how the money expended was used, 
to ascertain as closely as possible the actual and relative costs of the several 
departments, should help in determining whether the aid provided had 
been giving expected or adequate returns. 

The nature of the two acts providing special aid for industrial edu- 
cation should be recalled. To state them briefly, one allowed $2,500 
annually to high or graded schools maintaining, according to prescribed 
conditions, the three departments of agriculture, shop work, and home 
economics. The other granted $1,800 annually to high or graded schools 
maintaining, according to prescribed conditions, a department of agricul- 
ture and a department of shop work or of home economics. 3 Important 
questions arising in this connection are: 

1. Are $2,500 for three departments and $1,800 for two, fair distri- 
butions? 

2. How much does a department of agriculture really cost? 

3. How much does a department of shop work or one of home eco- 
nomics cost? 

1 Teacher Training Departments in high schools are not included in this discussion, except where 
specifically mentioned. The reason is that these departments are for the benefit of the state and not of 
the communities merely. The state recognizes this in attempting to pay all the special maintenance 
expenses of these departments. 

2 See Chapter 2. 

3 See Chapter 2. 



106 



RAYMOND ASA KENT 



4. How do salaries of instructors compare, both in the same depart- 
ment and between departments? 

To be able to compare costs a common unit of measuring that cost 
must be used. The unit here chosen was that of the pupil-recitation of 
instruction, the number of pupils being determined according to the total 
enrollment in the class. The cost itself is for maintenance and includes: 
first, salaries of instructors; and second, the expense of current supplies. 
As has already been stated, the data covering these items were obtained, 
through the kindness of Mr. George B. Aiton, directly from the reports 
of the schools in which these departments were maintained the preceding 
year and which received special aid in conformity with the two legislative 
acts previously described. 4 The data in these reports constituted the 
basis for the distributions of the state aid to these departments by the 
State High School Board. For the purposes of this study, therefore, these 
data are as authentic as any that could be used. 

TABLE LVIII 
Plan of Original Data Sheet for Cost of High School Instruction 





Classes 


Expenses 


Departments and Courses 


1-1 

o 


J3 


a) 
-d 
u 

<d 
ft 

u 

3 
o 

a 


u 

a) a> 

Sis 
H 


1 

u 


3 ft 




4J 
U 

u 

o 


o 


bo ;3 
> O O 

< ftxi 


I. Agriculture 

a. Crops 


I 


II 


III 


IV 


V 


VI 


VII 


VIII 


IX 


X 


b. Agronomy 




II. Home Economics 

a. Domestic Science, etc. . 
III. Shop Work 

a. 




b 









The accompanying sheet shows what information was used and how 
it was tabulated. The first column at the left is for the listing of depart- 
ments and the courses offered in them. Column I shows the year in which 
these several courses were offered. Column II tells the number of weeks 
which the respective courses were taught; column III, the number of reci- 
tation periods per day devoted to the subject; column IV, the number of 
days per week which such recitations were held; column V, the enrollment 
in each course; column VI, is the product of the figures in columns II, III, 
IV, and V, and may be called the number of pupil-recitation periods each 



4 Twenty-eight high schools received $2,500 each, and 68, $1,000 each. 
Report of Inspector of Stale High Schools, 52, 53. 



See Twentieth Annual 



STATE AID TO PUBLIC SCHOOLS 107 

course covered. In column VII is given the salaries of the instructors. 
Column VIII states the other direct expenses of maintenance for the 
year. Column IX is in each case the sum of the amounts in columns VII 
and VIII. 

The figures in column X are obtained by dividing the amount in 
column IV by the sum of the figures for each separate department in column 
VI. Where the instruction covered two recitation periods daily, the two 
periods were counted as two. The problem here concerns the time unit 
cost of instruction of a given subject. If the conditions in two schools 
were such that a given subject occupied two periods of recitation time in 
one school and in the second school it occupied only one period, the first 
school is charged with twice the time cost for that subject; where the 
recitation period varied five minutes no account is taken of such variation, 
as between forty and forty-five minutes, otherwise it is reduced to a forty- 
five minute basis. 

Salaries 

Inasmuch as each school receiving aid under either of these acts was 
required to report upon the salary of its instructors in each department, 
the figures necessary seemed readily available. In some cases, however, 
the instructors in special departments gave a part of their time to teach- 
ing regular, that is, academic, high school work. On the other hand, 
some regular high school instructors devoted part of their time to teach- 
ing industrial subjects. The latter division of time was technically per- 
missible by principals of graded schools and by superintendents of high 
schools receiving the $1,800 aid. 5 In either such exceptions, the person's 
salary was prorated. That part of it corresponding to the proportion of 
time devoted to teaching a given industrial subject was charged against 
the salary expense of the industrial department in which that subject was 
listed. In order to make the information covering such data accurate a 
lengthy correspondence was carried on with the superintendents and 
principals where these industrial departments had been maintained. No 
school was finally included in the list from which definite information was 
not received. 

The median annual salary of fifty-eight teachers in shop work is $863, 
fifty per cent receiving between $759 and $1,074. Fifty-three of the 
fifty-eight receive less than $1,100 each. 

The median annual salary of seventy-two teachers in home economics 
is $700, fifty per cent receiving between $624 and $774. Two thirds of 
all receive between $600 and $800. 

The median annual salary of fifty-nine teachers in agriculture is $1,206, 

6 See Chapter 2, note 46. 



108 



RAYMOND ASA KENT 



TABLE LIX 
Salaries of Special Instructors 





Number of Instructors 


Salary 


Shop Work 


Home Economics 


Agriculture 


$ 400 to $499 



3 
4 

12 
9 

11 
6 
3 
5 
1 
1 
1 


1 
1 


1 

11 
24 
24 
5 
2 
1 
1 

1 

1 


1 








500 " 599 





600 " 699 





700 " 799 





800 " 899 





900 " 999 


4 


1,000 " 1,099 


7 


1,100 " 1,199 


4 


1,200 " 1,299 


23 


1,300 " 1,399 


7 


1,400 " 1,499 


4 


1,500 " 1,599 


6 


1,600 " 1,699 


3 


1,700 " 1,799 


1 


1,800 " 1,999 





2,000 " 2,199 











58 


72 


59 



fifty per cent receive between $1,197 and $1,292; twenty-three, or nearly 
forty per cent, of them receive between $1,100 and $1,200 each. 

Up to $900 over forty-eight per cent of the shop salaries are included, 
and over ninety per cent of the home economics salaries, but not one in 
agriculture. Less than eighteen per cent of the shop salaries and less than 
five per cent of the home economics salaries are equal to or above the median 
salary in agriculture. 

After the salaries of instructors in industrial work had been ascertained, 
it seemed desirable to compare them with salaries of regular high school 
instructors. It would have been highly desirable could comparisons have 
been made directly between salaries by subjects in industrial departments 
and in specific academic departments. Such detailed comparisons could 
not be made on the basis of the facts known. The data available cover- 
ing salaries of instructors of regular high school subjects could not be 
divided even by departments as could the data for the cost of industrial 
departments. On account of the size of most high schools in the state 
one instructor usually teaches several subjects, the classes of one depart- 
ment often being divided among several people. It was impossible to 
make any accurate division of salaries on the basis of time devoted to the 
teaching of given subjects in the various high schools. 

The median annual salary of 789 teachers 6 in regular high school work, 
excluding superintendents, but including principals, is $725. The middle 

6 These are chosen from both classes of specially aided schools and from schools in neither of these 
classes. 



STATE AID TO PUBLIC SCHOOLS 



109 



one half of these individuals receive between $628 and $830. Seven hun- 
dred and sixty-five of the 789, or nearly 99 per cent, receive less than 
$1,200, the median salary of the agriculture teacher. 

How salaries of special instructors compare with those in regular high 
school work in departments and work which receive no special departmental 
aid, is answered by reducing the distributions of Tables LIX and LX to a 
per cent basis and then comparing them, as shown in Table LXI. 

TABLE LX 
Salaries of Regular High School Teachers 



Number of 


Per Cent of 


High School 


Teachers' 


Teachers 


All Teachers 


Salaries 


1 


.1 


$ 400 to $ 499 


110 


13.9 


500 


it 


599 


251 


31.8 


600 


n 


699 


194 


24.5 


700 


it 


799 


117 


14.8 


800 


it 


899 


56 


7.1 


900 


it 


999 


19 


2.4 


1,000 


u 


1,099 


17 


2.1 


1,100 


n 


1,199 


13 


1.6 


1,200 


it 


1,299 


9 


1.1 


1,300 


u 


1,399 





.0 


1,400 


It 


1,499 





.0 


1,500 


it 


1,599 


1 


.1 


1,600 


It 


1,699 





.0 


1,700 


it 


1,799 


1 


.1 


1,800 


It 


1,899 



TABLE LXI 
Salaries of All Groups of High School Instructors 







Home 






Salary 


Shop 


Economics 


Agriculture 


High School 




58 teachers 


72 teachers 


59 teachers 


789 teachers 


$ 400 to $ 499 


.0 


1.4 


.0 


.1 


500 " 599 


5.1 


15.0 


.0 


13.9 


600 " 699 


6.8 


33.3 


.0 


31.8 


700 " 799 


20.6 


33.3 


.0 


24.5 


800 " 899 


15.5 


7.0 


.0 


14.8 


900 " 999 


18.9 


2.8 


6.7 


7.1 


1,000 " 1,099 


10.3 


1.4 


11.8 


2.4 


1,100 " 1,199 


5.1 


1.4 


6.7 


2.1 


1,200 " 1,299 


8.6 


.0 


38.9 


1.6 


1,300 " 1,399 


1.7 


1.4 


11.8 


1.1 


1,400 " 1,499 


1.7 


.0 


6.7 


.0 


1,500 " 1,599 


1.7 


1.4 


10.1 


.0 


1,600 " 1,699 


.0 


.0 


5.1 


.1 


1,700 " 1,799 


.0 


1.4 


1.7 


.0 


1,800 " 1,999 


1.7 


.0 


.0 


.1 


2,000 " 2,199 


1.7 


.0 


.0 


.0 



Comparisons among the salaries in all these departments can best be 
made by means of a summarizing table, and by curves plotted on the same 
base on a percentage distribution. 



30% 



20*.. 



10?- 




■fe 



H- 9-. ° e? c? 



o o o o o 



Home Lcoiiomics 

' Ac<ncle m ic. 



% % % % \ % % o ^O 
o °o °o °o °o o ° o o o 

Shop 



Ao'MCultuit 



Figure 13 
Salaries of high school instructors by departments 



STATE AID TO PUBLIC SCHOOLS 111 

TABLE LXII 
High School Salary Distributions 



Department 


Median 


Middle 50% 


Home Economics. . . . 
Regular High School. 
Shop 


$700 
725 
863 

1,206 


$ 624 to $ 774 
628 " 830 
759 " 1,074 


Agriculture 


1,197 " 1,292 



The salaries of the instructors in home economics and in regular high 
school work follow much the same form of distribution. The median and 
mode are nearly the same, as are also the lower quartiles. 

The upper quartiles are a little farther apart. In every single item of 
comparison the number for home economics instructors is the smaller one. 

Shop and agriculture salaries have two marked characteristics: (1) the 
curves of distribution are more irregular, and (2) the salaries are markedly 
higher than for the other two groups. There are two probable reasons 
for the first fact, — (1) the wide range in the character of the work done 
and hence in the type of instructors employed, 7 and (2) the fact that be- 
cause of the newness of this kind of work in these schools the work is not 
well standardized. The higher salaries are probably due to (1) newness of 
the work and hence scarcity of instructors, especially in agriculture, (2) 
technical character of training needed for preparation for such work, and 
(3) the fact that most of these instructors are men. 
i 

Time Unit Cost 

In determining time unit cost both salaries and expenses for current 
supplies were included in computing the cost, as has been stated before. 
The time unit taken was the pupil recitation. To determine this unit 
cost in any department, as in shop work, the method was as follows: the 
sum of the salaries and cost of supplies for that department for the year 
was the year's cost of maintenance of that department. The product of 
the figures representing any course for that department, pupils enrolled, 
weeks the course ran, and recitations per week, constitute the pupil-reci- 
tation periods in that course. The sum of the pupil-recitation periods of 
all courses in the department is the total number of pupil-recitation periods 
to be charged to that department. The total cost of maintenance divided 
by the total number of pupil-recitation periods gives us as a product the 
cost per time unit. 

The time unit cost of each of the special departments is shown here- 
with. 

'See Twentieth Annual Report, Inspector of State High Schools, 57. 



112 



RAYMOND ASA KENT 



TABLE LXIII 

Time-Unit Cost of Departments in Seventy-one High Schools Maintaining 
Four Departments of Work 



Cost 


Home Economics 


Agriculture 


Shop Work 


High School 


to .9 


1 








2 " 2.9 


12 




1 




3 " 3.9 


14 




7 


5 


4 " 4.9 


12 


1 


4 


25 


5 " 5.9 


8 


5 


5 


13 


6 " 6.9 


9 


2 


10 


16 


7 " 7.9 


5 


3 


7 


2 


8 " 8.9 


2 


2 


6 


6 


9 " 9.9 


2 

2 


3 

2 


5 
5 


2 


10 " 10.9 


2 


11 " 11.9 


1 


4 


7 




12 " 12.9 





5 


2 




13 " 13.9 





6 


2 




14 " 14.9 





5 


5 




15 " 15.9 


2 


9 


1 




16 " 16.9 





1 


1 




17 " 17.9 





3 


1 




18 " 18.9 


1 


6 







19 " 19.9 




3 


1 




20 " 20.9 










21 " 21.9 










22 " 22.9 










23 " 23.9 










24 " 24.9 










25 " 25.9 










26 " 26.9 










27 " 27.9 










34 " 34.9 










37 " 37.9 










38 "38.9 










39 " 39.9 






1 




40 " 40.9 










43 " 43.9. . .' 










44 " 44.9 




47 " 47.9 




48 " 48.9 




49 " 49.9 




50 " 50.9 









Medians: Home Economics 4.2 cents 

Agriculture 14.0 " 

Shop Work 7.8 " 

High School 4.9 " 

This table shows several facts of interest. Possibly some of them are 
brought out more clearly by Figure 14. In the first place the cost of 
instruction in regular high school work is quite well standardized. And 
the departments here included under "high school" can not include any 
home economics, shop work, or agriculture. If there were any schools 
here that did not receive special aid that condition might be true. But 
in these seventy-one schools the work of all departments that might receive 
special aid has been transferred to its respective department. The figure 



W/i_ 



30^ 



2 0°A_ 




10^ 



O 10 20 

Home Economics 
Academic 



30 40 50 

Agriculture < — »- 



5 



V)Op t- 



Figure 14 

Unit cost of high school instruction by departments 



114 RAYMOND ASA KENT 

for the cost of academic high school instruction in this case then applies 
only to academic instruction. The modal cost of this instruction is 5 
cents, the median cost is 4.9 cents. 

The cost of instruction is not so nearly standardized in any other de- 
partment. It is least standardized in agriculture. Home economics is 
more nearly standardized than shop instruction. 

The second interesting feature is in connection with departmental 
comparisons. Because of what has been found out concerning salaries in 
these respective departments (Table LXI), one would expect the unit 
cost of agriculture to be the highest, as it is. 8 One would also expect the 
cost of shop instruction to be next, as it is. But one is rather surprised to 
find the cost of home economics below regular high school instruction. 9 
There are probably two facts that help explain this situation. The first 
is, as we have seen, that the salaries of the teachers of home economics as 
a group are below that of the high school instructors as a group, in any 
way they are compared. The second reason is that the cost of supplies 
for the home economics department of a small high school in many cases 
does not exceed the cost of supplies for a science department in the same 
school. The low figures for "other expenses" in this department is a 
noticeable feature of the reports as returned from the schools. 

In the third place, the extremely high cost of agricultural instruction 
in many of the schools not only indicates a pronounced lack of stand- 
ardization of the type of work aided in this department, but it also raises 
the serious question as to whether some schools are not either uneconomical 
in their expenditures for agriculture, or whether they have not stressed 
this department to a degree that reacts upon the possible growth of other 
departments. 

In the fourth place, these facts suggest that one could work out from 
unit costs a reasonable estimate of what a course in agriculture should 
cost a school if he knew the amount of time a pupil should be expected to 
spend in the recitations of such course. 10 The same would hold true with 
respect to an estimate for any one of these departments. Such an estimate 
could not be rigidly set as a standard. Variations would need to be 
allowed. But it would at least be true that with such an estimate, care- 
fully worked out, the state could determine, within reasonable limits, 
when any school was making excessive or unwarranted expenditures in a 

8 One reason for the greater cost of agricultural instruction is the fact that the high-school teacher 
in this department is required to do extension work. He teaches the first half of the day and goes into 
the country afternoons and Saturdays giving expert advice, organizing clubs, and performing gratis for 
the farmers of that community such work as will assist them in improvement in applied agriculture. Some 
may say that the proportion of an instructor's time devoted to such extension work should not be charged 
to the school district. Perhaps it should not be, but it is, and because of present school practice must be 
included here. 

9 It will be shown later in the chapter that a slightly higher figure more nearly represents the cost 
of regular high school instruction for the state at large. 

10 See Annual Report of the School Committee, Newton, Mass., 1911, 142, et seq. 



STATE AID TO PUBLIC SCHOOLS 



115 



department. The estimate would also furnish a basis of operation for 
determining how much a district should spend in any one of these depart- 
ments before it should be entitled to any state aid for such work. Some 
such plan, or a modified form of it, is the state's greatest need at present 
in connection with the distribution of special aid to these departments. 

The fact that high school instruction-cost appears so much higher in 
one group of high schools than in another led to a search for some explana- 
tion. The rise in this cost caused by including the schools without indus- 
trial departments, at once raised the question whether there is any connec- 
tion between cost of regular instruction and the presence of departments 
receiving industrial aid, and if there is any connection, just how it operates 
and why. 

To attempt to answer these questions, as many high schools as possible 
receiving special industrial aid were put into one group, and about the same 
number that did not receive such aid were put into another group. The 
unit cost of instruction in regular high school work was then computed 
separately for each group. 

The facts of this cost in the two groups are shown in Table LXIV. 



TABLE LXIV 

Unit Cost of Academic Instruction in Industrial and 
Non-Industrial High Schools 



Cost per 


Number of Schools 


Pupil-Recitation 


Industrial 


Non-industrial 


Cents 

3 to 3.9 

4 " 4.9 


11 

22 

23 

9 

5 
5 
5 

1 


4 
9 


5 " 5.9 

6 " 6.9 


23 
19 


7 " 7.9 


11 


8 " 8.9 

9 " 9.9 


5 
6 


10 " 10.9 


4 


11 " 11.9 


1 


12 " 12.9 




13 " 13.9 




15 " 15.9 


1 


16 " 16.9 

19 " 19.9 


2 
1 


26 " 26.9 


1 


Total number of schools . . 
Median cost 


80 

5.2c 


87 
6.6c 







Finally, there was available a total of 164 high schools, 11 some having, 
and some not having, departments receiving industrial aid. The cost of 
regular high school instruction was computed for this group of schools. 
The results are shown in Table LXV. 

11 This group consists of the former seventy-one schools with ninety-three others added. 



116 



RAYMOND ASA KENT 



TABLE LXV 

Unit Cost of Academic Teaching in One Hundred 
and Sixty-four High Schools 



Cost 


Number of Schools 




Cents 




2 to 


2.9 


1 


3 " 


3.9 


6 


4 " 


4.9 


41 


5 " 


5.9 


38 


6 " 


6.9 


41 


7 " 


7.9 


11 


8 " 


8.9 


11 


9 " 


9.9 


8 


10 " 


10.9 


3 


13 " 


13.9 


1 


15 " 


15.9 


1 


16 " 


16.9 


1 


24 " 


24.9 


1 


Median 5 . 8 cents. 





For Minnesota we have, then, the following figures covering the cost 
of regular high school instruction in schools taken by different groupings. 



TABLE LXVI 
Unit Cost of Academic Instruction in Minnesota 



Number of Schools 


Type of Schools Included 


in Group 


Industrial 


Non-Industrial 


Both 


71 




4.9c 




80 


5.2c 




87 


6.6c 




164 




5.8c 











For the state as a whole the cost of regular high school work for the 
group of 164 schools seems to be the most representative figure. It is 
practically the median of the three others. By including a fair representa- 
tion of all types of high schools in the state, it is clearly representative of 
conditions for the entire state. 

The question at once arises as to which group should be selected for 
purposes of comparing high school costs. Is not 5.8 cents, that which 
more nearly represents the entire state, the correct one on which to form 
such comparisons rather than 4.9 cents, which is the high school cost in 
only those seventy-one schools? The question is a very fair one, but the 
answer is quite evident. Those seventy-one schools constitute the only 
group whose unit costs can in justice be compared with other studies. In 
every Minnesota group other than this one, some schools in the "non- 
industrial" group are supporting some industrial work. "Non-industrial" 



STATE AID TO PUBLIC SCHOOLS 117 

means merely that none are receiving special industrial aid for such work. 
"High school" unit cost in "non-industrial" groups, other than the seventy- 
one, includes, then, the cost of some industrial work. In the seventy- 
one schools "high school" cost covers only academic instruction. All 
industrial work is placed in one of the three industrial departments, about 
one third of which receive special aid for each of the three industrial de- 
partments. This is the condition most nearly comparable to that in other 
schools compared where the cost of the work of each department includes 
none of the cost of work from any other department. 

When we want figures that reflect more nearly conditions for the state 
as a whole the unit cost of "high school" work among the 164 is the one 
to be used. Better still and more nearly the truth would be two figures, 
one for "industrial" and the other for "non-industrial" schools. 

Our problem here, however, was to find out, if possible, some of the 
reasons for the existence of difference in cost in presumably the same 
general department of work. 

One reason has already been partly stated. In many high schools 
that receive special aid for only two departments, some work is done 
representing the third department. In computing costs as we have been 
obliged to do, the cost for this third division of work has been included 
under "high school" or "academic" work. 

Again, in practically all high schools, including those receiving no 
special industrial aid, some industrial work is done. In these cases the 
cost of all such industrial work is computed with the cost of "high school" 
work. 

But errors of method do not account for all the variation. Work in 
home economics costs less than regular high school work. Shop work 
in all probability is usually no more than bench or perhaps cabinet work, 
except where it receives special recognition and aid. Agriculture, the 
costliest department, is seldom if ever maintained in any school as a depart- 
ment until it receives special aid. The difference in the cost of academic 
work does not seem to be covered by the possible causes so far described. 

At last after diligent search another cause was found. Forty-six 
instructors in special departments, — not including superintendents, — for 
which the state pays special aid, gave from one fourteenth to three sevenths 
of their time, respectively, to teaching regular high school subjects not 
specially belonging to their departments. The distribution of this part 
of their time is shown in Table LXVII. 

At the time that the work on unit cost of instruction was completed 
results were compared with those computed by Frank E. Spaulding for 
Newton, Mass. 12 His findings are comparable with those for Minnesota 

12 See Annual Reports of the School Committee, Newton, Mass., 1911; ibid., 1912; ibid., 1913. 



118 



RAYMOND ASA KENT 



since his method is similar to the one employed here, except that he includes 
only salaries and not any other expenses. "The common unit is a single 
'recitation' for a single pupil; — all recitations are practically the same 
length, about forty-five minutes." 13 His findings are represented in 
Tables LXVIII and LXIX. 

TABLE LXVII 

Time Devoted by Industrial Instructors to 
Teaching Academic High School Subjects 



Fraction of School Day 


Number of Instructors 


1/14 


6 


1/7 


17 


1/5 


2 


8/35 


3 


1/4 


1 


2/7 


8 


7/22 


1 


3/7 


2 


12/35 


2 


1/2 


1 


13/35 


1 


3/7 


2 



TABLE LXVIII 
Pupil Recitation Costs" in Newton, Massachusetts High Schools 





Household Arts 


Shop Work 


School 


1911 


1912 


1913 


1914 


Average 


1911 


1912 


1913 


1914 


Average 




6.2 


8.8 


4.2 
6.4 


4.0 

5.7 


5.3 
6.1 

5.7 


8.7i 6 


7.9 


4.1 
9.916 


6.0 
6.6 


6.7 
8.3 












7.5 























TABLE LXIX 
Academic 





1911 


1912 


1913 


1914 


Average 




5.8 


5.8 


5.7 
7.3 
5.7 


5.4 
6.2 
5.7 


5.7 




6.3 




5.6 


5.7 


5 7 







13 Annual Reports of the School Committee, Newton, Mass., 1911 p. 121. 

14 For figures representing cost of 1911, see report of that year, table 14, opposite p. 1212. For those 
representing the cost of all the other years, see Report for 1913, tables 10, 11, and 12, opposite p. 83. All 
the averages have been computed for this table. 

15 Listed as "Mechanical Work." 

19 Average of separate costs of (1) cabinet making, (2) pattern making, (3) machine shop. 



STATE AID TO PUBLIC SCHOOLS 



L19 



In 1915 the results of two other studies on unit cost of high school 
instruction were published. One, by Walter S. Monroe, 17 is for the state 
of Kansas, and includes 203 schools. The other, by Franklin Bobbitt, 18 
is a study of twenty-five high schools scattered over several states. 

The methods and units used by each of these investigators allow com- 
parisons between costs of high school instruction as computed for each of 
these separate groups and costs computed for Minnesota schools. 

In using these studies for comparative purposes certain additional 
computations were made. The median cost of all academic subjects 
was computed for Kansas schools. This was done by finding the median 
of the array of the separate costs as given by schools for English, mathe- 
matics, history, science, modern languages, Latin, and commercial sub- 
jects. 19 Medians for the cost of instruction in agriculture, household arts, 
and manual training were computed for the array of costs in each sub- 
ject just as these costs are given in the report. 

To be able to use the study of the twenty-five schools comparatively 
"thousand student hours" was reduced to a forty-five minute hour cost. 
Medians were computed, where not given, in identically the same way 
as for the Kansas schools. 

Inasmuch as there are some known differences among the methods of 
these several investigators, and perhaps more unknown differences, in 
presenting the table of comparisons there is presented not only the unit 
cost as found, but also for each study the ratio of the unit cost of each 
special department to that of the academic department. These com- 
parisons are shown in Table LXX. 



TABLE LXX 
Comparisons of Unit Cost of High School Instruction 



Cost in Cents per Pupil Hour 


Ratio to Academic Cost 


Study 


Agriculture 


Shop 


Household 
Arts 


Academic 


Agriculture 


Shop 


Household 
Arts 


Bobbitt 


3.6 


7.0 


4.6 


4.7 


.77 


1.49 


.77 






Kansas 


5.1 


5.7 


4.7 


4.7 


1.09 


1.22 


1.00 


Minnesota 


14.0 


7.8 


4.2 


4.9 


2.86 


1.59 


.86 






7.5 


5.7 


5.7 




1.31 


1.00 











In the above table the following facts are noteworthy: 
1 . With the exception of one city, Newton, the ranking of the studies in 
the order of academic costs corresponds roughly to their ranking in shop costs. 

17 Monroe, The Cost of Instruction in Kansas High Schools, Bureau of Education Studies, Number 2. 
Kansas State Normal School, Emporia, 1915, Measurements and Standards. 
>8 Bobbitt, High School Costs, School Review 23:505. 
19 The Cost of Instruction in Kansas High Schools, 32, 33, 34, 35. 



120 RAYMOND ASA KENT 

2. With the exception of Newton, the ranking in academic costs cor- 
responds roughly with the ranking in household arts costs. 

3. Unit cost for household arts work never exceeds unit cost for 
academic cost. 

4. Unit cost in shop work always exceeds academic unit cost by at 
least one fifth. 

5. Costs in agriculture show greatest variability, both in unit costs 
and in ratio to academic costs. Even though one estimates that half of 
the school day of each agriculture instructor in Minnesota is devoted to 
extension work, the unit cost of the instruction for this work in the state 
is still in excess of both unit and ratio cost for corresponding work in the 
other groups. This estimated division of time given to extension work is 
too large. 

6. Except in agricultural instruction, Minnesota is in the "safety 
zone" of unit costs for high school work. 

7. In agriculture the cost of instruction is questionably high. Rather 
than allow this condition to continue indefinitely and unchallenged the 
state should make an exhaustive investigation to determine why these 
costs are as high as they are and whether they are justifiable. 

Correlations 

The correlations between the unit cost of regular high school work and 
that of the special departments were computed by the Pearson method for 
the group of seventy-one schools. The results are shown in Table LXXI. 

TABLE LXXI 
Correlation of Unit Cost in High School 



Item A 


Item B 


R20 


Regular high school work 
Regular high school work 
Regular high school work 


Agriculture 
Home Economics 
Shop Work 


+ .336 
+ .358 
+ .085 



Expenses of instruction in agriculture and in home economics tend to 
rise and fall, to increase and decrease with expense of instruction in regular 
high school work in this group of schools. This tendency is most marked 
in the case of home economics. We are not surprised at this, knowing the 
rather close comparison of salaries among home economics teachers and 
regular high school teachers. The high correlation figure in the case of 
agriculture comes somewhat as a surprise. It tends to bear out the 
assertion previously made, however, that the industrial high schools as 
a group are not only the best organized, but the best supported as public 
educational institutions. 

20 Each correlation coefficient is unattenuated. 



STATE AID TO PUBLIC SCHOOLS 



121 



After the two preceding rather high correlation figures the low one in 
shop work is hard to explain. There is without doubt, though, a very 
great variability in the kind of work here included. The cost of this 
work .varies greatly with the kind of work given. It varies not only in 
the nature and shop costs of the work given but also in the salaries paid. 
The table of salaries shows the variability of the salaries of teachers in 
this department to be the greatest for any group of teachers studied. 

In attempting to ascertain the results of the support of these indus- 
trial departments a question naturally arises as to the effect the depart- 
ments have had upon the personnel of the student body. Are more people 
drawn to the high school? Are more people drawn from the country to 
attend these departments than attended the high schools before? 

.Tables LXXII, LXXIII, LXXIV, LXXV, and LXXVI were com- 
piled in the attempt to get some light on these questions. Teacher- 
training departments were taken into account. When they were estab- 
lished, "it was hoped that third grade teachers, young people who were 
rather mature for eight grades, would enter a special school of this 
sort — ." 21 If the results had been as expected the high schools with such 
departments would have had an increase in enrollment both in total and 
from outside, which should not be confused with outside enrollment due 
to industrial departments. 

TABLE LXXII 
Teacher Training Departments 













Total 








Number of 


Total 


Per Cent 


High School 


Per Cent of 


Year 


Departments 


Enrollment 




Enrollment 


1905-06 


1905-06 


(13) 


13 (38) 


229 (38) 


1.0 


22,106 (15) 




1906-07 


(14) 


10 (27-8) 


182 (28) 


0.8 


23,687 (13) 


107.1 


1907-08 


(15) 


10 (36) 


253 (36) 


1.0 


24,530 (16) 


110.9 


1908-09 


(16) 


7 (39) 


173 (39) 


0.7 


26,583 (18) 


120.2 


1909-10 


(17) 


28 (35) 


489 (35) 


1.7 


28,562 (17) 


129.2 


1910-11 


(18) 


56 (50) 


740 (50) 


2.5 


29,971 (27) 


135.5 


1911-12 


(19) 


81 (49) 


1,018 (49) 


3.1 


33,295 (29) 


150.6 


1912-13 


(20) 


80 (61) 


974 (61) 


2.8 


34,854 (36) 


157.9 


1913-14 


(21) 


106 (43) 


1,256 (43) 


3.4 


36,703 (31) 


166.0 


1914-15 


(22) 


119 ( 5) 


* 




39,520 (28) 


178.7 



* No data given in the report. 

Note: The figures in parentheses after the years are the respective annual reports of the state 
inspector of high schools from which the data have been taken. The figures in parentheses other than 
these are the pages in these reports from which the respective data have been secured. 

Results did not meet hopes. The state inspector two years later 
reported the enrollment in these training departments "confined almost 
entirely to high school pupils." 22 The establishment of the departments 
resulted only in opening a possible new field of work for pupils already 
attending. Similar results seem to have followed the spread of this work 



51 Thirteenth Annual Report of State High School Inspector, 37, 38. 
21 Fifteenth A nnual Report, 36. 



122 



RAYMOND ASA KENT 



in more recent years. Computations for the department are included} 
nevertheless, in order that no data may be lacking. 

Tables LXXII, LXXIII, and LXXIV aim to give an idea of the rela- 
tive growth of departments operating under the teacher-training aid, 
$2,500 industrial aid, and $1,800 23 industrial aid, respectively. Enroll- 
ment in agriculture only is taken for the industrial departments. There 
is no enrollment given for the entire department. One could add the 
agriculture and the home economics enrollment, or the shop and home 
economics. But the relative growths in agriculture are the most typical 
and fairest to take since agriculture was the only one of the three subjects 
that was required in the second group of industrial schools. 

TABLE LXXIII 
Schools Receiving $2,500 Industrial Aid 



Year 


Number of 
Departments 


Agriculture 
Nine Months 


Enrollment 
Short Course 


Per Cent of To- 
tal High School 
Enrollment* 


1905-06 


None 

9 (36) 

9 (41) 

28 (33) 

28 (51) 

37 (49) 

38 (56) 


245 (38) 

266 (41) 

937 (37) 

1,118 (55) 

1,678 (48) 

1,760 (60) 


187 (38) 
256 (41) 
532 (37) 
544 (55) 
489 (48) 
426 (60) 




1906-07 




1907-08 




1908-09 




1909-10 


0.9 


1910-11 


0.9 


1911-12 


2.8 


1912-13 


3.2 


1913-14 


4.5 


1914-15 


4.5 







* Computed for those enrolled in the nine months' course. 
Note: See note to Table A. 



TABLE LXXIV 
Schools Receiving $1,800 Industrial Aid 



Year 


Number of 
Departments 


Agriculture 
Nine Months 


Enrollment 
Short Course 


Per Cent of To- 
tal High School 
Enrollment 


1911-12 


50 (35) 
68 (53) 
82 (46-47) 
91. (57-58) 


1,538 (37) 
2,125 (55) 
2,491 (29) 
2,767 (61) 


584 (37) 
656 (55) 
689 f49) 
595 (61) 


4.6 


1912-13 

1913-14 


6.1 
6.8 


1914-15 


7.0 



Table LXXV shows the per cent of outside enrollment for the last 
eleven years in the high schools receiving special industrial aid in 1914-15. 
The fact that the number of schools is not the same every year is accounted 
for by the fact that certain of these schools have been added to the state 
high school list each year. The per cent of outside enrollment in such 
schools when they were on the list of graded schools would have been 
computed had the graded school inspector's report given the necessary 



2« At first $1,000. See Chapter 2. 



STATE AID TO PUBLIC SCHOOLS 



123 



data. All the computations of this table arc made on the enrollment 
figures in the reports of the high school inspector as referred to in Table 
LXXII. 

TABLE LXXV 

Per Cent of Outside Enrollment in Industrial High Schools 
for the Last Eleven Years 



Per Cent 


1904-05 


1905-06 


1906-07 


1907-08 


1908-09 


1909-10 


1910-11 


1911-12 


1912-13 


1913-14 


1914-15 


0- 4.9 


7 


s 


9 


6 


5 


3 


3 





3 





7 


5- 9.9 


9 


14 


8 


11 


9 


8 


8 


7 


7 


6 


6 


10-14.9 


15 


18 


15 


15 


10 


13 


13 


9 


9 


5 


9 


15-19.9 


14 


15 


11 


17 


21 


18 


10 


15 


16 


15 


9 


20-24.9 


12 


10 


18 


12 


19 


22 


19 


23 


18 


16 


23 


25-29.9 


13 


6 


14 


12 


16 


12 


16 


15 


28 


22 


17 


30-34.9 


13 


17 


16 


12 


11 


16 


16 


22 


15 


18 


25 


35-39.9 


6 


5 


8 


15 


13 


10 


7 


10 


9 


17 


13 


40-44.9 


11 


8 


5 


11 


6 


7 


8 


12 


9 


11 


6 


45-49 . 9 


1 


7 


6 


3 


3 


6 


12 


3 


2 


4 


7 


50-54.9 


3 


4 





3 


4 


1 


2 


4 


5 


4 


4 


55-59.9 


1 





3 


1 





2 


5 


3 


5 


1 


4 


60-64.9 






2 


1 


1 


1 





1 




5 




65-69 . 9 






1 





















70-74.9 










1 











1 




75-79.9 





















1 




80-84.9 














1 












105 


110 


116 


119 


119 


119 


120 


124 


126 


126 


130 


Medians . . 


23.3 


20.0 


19.3 


19.6 


18.9 


19.1 


22.3 


22.7 


21.9 


24.9 


23.4 



Table LXXVI gives the summaries of the preceding four tables and 
states also the per cent of outside enrollment in all the schools of the state. 

TABLE LXXVI 

Divisions of High School Enrollment for the State on the 
Basis of Per Cent of Total High School Enrollment 





In Teacher 

Training 

Departments 


IN PUTNAMf 

Schools in 
Agriculture 


In 
Benson-Lee $ 

Schools in 
Agriculture 


Total Outside Enrollment 


Year 


All 
schools 


Industrial 
schools 


1904-05 


.0 
1.0 

.8 
1.0 
0.7 
1.7 
2.5 
3.1 
2.8 
3.4 


0.9 
0.9 
2.8 
3.2 
4.5 
4.5 


4.6 
6.1 
6.8 
7.0 


13.6 
14.2 
14.3 
14.3 
14.6 
15.4 
16.0 
16.4 
16.2 
17.0 
16.7 


23.3 


1905-06 


20.0 


1906-07 


19.3 


1907-08 


19.6 


1908-09 


18.9 


1909-10 


19.1 


1910-11 


22.3 


1911-12 

1912-13 


22.7 
21.9 


1913-14 


24.9 


1914-15 


23.4 







* No data given in report, 
t Schools earning $2,500.00. 
% Schools earning $1,800.00. 



From the data in the last five tables these conclusions seem warranted : 
1. Teacher-training departments have acted largely as a new field of 

work for regular students and have not attracted non-high school students 

to a great degree. 



124 RAYMOND ASA KENT 

2. The schools receiving special industrial aid are a group of schools 
that have always had a larger per cent of outside enrollment than the 
group of non-industrial schools. 

3. For the state at large the industrial departments have to some 
degrees drawn non-residents. This result has not been very marked and 
up to date has succeeded in scarcely more than bringing back to relatively 
the same group of schools a proportion of outside enrollment equal to 
what was theirs ten years ago. 

4. Except for the short courses and the extension work of departments 
receiving industrial aid, their most marked service and by far the greatest 
part of their work has been among the high school children, who in all 
probability would be in school even if these departments did not exist. 

5. In other words, excellent as the industrial work may be, for the 
state at large its maintenance means only new departments for regular 
high school pupils rather than any decided change in the personnel of 
the high school group. 

Objections and exceptions to these conclusions may be anticipated. 

One will be that no account has been taken of consolidated schools. 
Nor should there be. When consolidation is considered, then aid for 
consolidation immediately becomes a partial cause for all results. It is 
true that the added attraction of industrial aid may have helped toward 
consolidation in some instances. The present consolidation aid is so 
liberal, however, as to raise a very serious question as to how much influ- 
ence industrial aid alone would have had. 24 

Some may say that associated districts have made some industrial 
schools possible. 

It must not be forgotten that association has been well baited by 
association aid for both parties concerned. 

The Twenty-second Annual Report of the High School Inspector is 
the only one that gives any data on association. 25 Forty-one high schools 
have such associations, with 831 children included by reason of the 
associations. We know that in some cases these children are not even 
transported to the central school, but remain in their own districts under 
central supervision. Judging according to rural schools in general, the 
greater proportion of those pupils who go to the central district enter the 
grades and not the high school department. Let one estimate the number 
in the high schools, due to association and then let him compute, if he 
wishes, the ratio of credit between association aid and industrial aid, for 
the presence of those pupils, and it will be quite clear that the source of 
error in the previous conclusions on this account is almost negligible. 

M At the date of completing this study, 1916, there is only one pure consolidated school on the high 
school list. See Twenty-second Annual Report of Stale High School Inspector, 4. 
56 Ibid., 64. 



STATE AID TO PUBLIC SCHOOLS 125 

Summary and Conclusions 

1. The group of schools having industrial departments seems to be 
better organized and standardized as typifying a group. 

2. Industrial schools do not have quite so high a unit cost in academic 
work, as is shown (1) by their close grouping, and (2) by the scattered 
cases in the non-industrial group. 

3. There is a decided lack of standardization of the cost of high school 
instruction for the state as a whole. 

4. Among the industrial departments the cost of home economics is 
least and seems most nearly uniform. 

5. Shop work seems fairly uniform in cost. 

6. Agriculture costs are much lacking in uniformity. Without doubt 
this work lacks standardization. 

7. Salaries of agriculture instructors are too greatly out of proportion 
to other high school salaries. 

8. If salaries of agriculture instructors are to include payment for 
extension work, then a specific part of their total time and salary should 
be definitely set aside for such purpose. We should know what extension 
work costs as an item separate from high school instruction. 

9. Comparative unit costs indicate that industrial work for boys costs 
more than academic, but that industrial work for girls never costs more. 

10. On the other hand in certain schools special industrial aid results 
directly in lessening the cost of regular high school instruction by special 
instructors devoting part of their time to regular high school teaching. 

11. The establishment and state support of special departments have 
meant the enlargement of the curricula for those already attending high 
school and have not materially increased high school enrollment. 

12. Except in the matter of agriculture, unit costs for high school 
instruction in Minnesota are neither extremely high nor extremely low, 
as compared with similar costs elsewhere. 

13. Standardized methods of accounting and of reporting expenditures 
should be required so that there can be a strict checking of all expenditures 
of each department annually. 26 

14. There should be more adequate provision for close supervision of 
all special work by the state. 

15. The work of all departments should be standardized in direct ac- 
cordance with the work that the Minnesota communities need. 

16. All schools which receive industrial aid should be required to con- 
form to such standards. 

17. Through the formation and use of these standards and their proper 
revision, from time to time, there should be a definite attempt to distribute 
state aid more equitably among the several departments of the high school. 

*• See blank for Industrial School Report. 



CHAPTER VIII 
CONCLUSIONS 

After a consideration of all the facts presented can we answer our first 
inquiry, "What is the effect of state aid in Minnesota? Is state support 
securing satisfactory results or results commensurate with the amount 
of money given?" 1 

Before attempting to make a final answer let us try to lay down some 
criteria or principles which may guide our judgment. Considerable 
assistance is given us here by a careful examination of some of Swift's 
findings in his study of "Public Permanent Common School Funds." 2 
"The decline of the common school system of Connecticut under the influ- 
ence of the school fund was a most convincing demonstration of the prin- 
ciple that an endowment which relieves the community from the necessity 
of raising money by local effort is an injury to the community and to the 
cause the endowment is seeking to advance." 3 In New York, the act of 
1812, passed three years prior to the first distribution of the revenue of 
the New York School Fund, required "a local contribution equal to the 
amount received from the state." 4 The House Committee on Education 
of the Massachusetts Legislature in 1828 stated that if the state gave 
local communities about one third the amount they themselves raised, 
such grant would act as an incentive to interest and to effort. 5 The Special 
Commission on the Permanent Common School Fund of Vermont, 1906, 
stated, as one of the purposes of a permanent school fund that it should 
"lay the foundation of a true and actual supervision by the state, of public 
instruction, in connection with its actual direction of and accounting for 
school moneys disbursed, particularly such funds as the state itself sup- 
plies to towns by taxation or through permanent investment for the sup- 
port of schools." 6 

Swift concludes that "there has been little uniformity in the objects 
to which different states have permitted the income of the permanent 
common school funds to be applied." 7 At the same time a survey shows 
quite clearly defined aims. "The earlier methods of apportionment .... 
were adopted simply as means of distributing the school revenue equally, 
as it was supposed, among the different communities of the state .... 
The more complex methods of apportionment .... have aimed directly 

1 See Chapter 1, p. 2. 

2 Swift, Public Permanent Common School Funds in the United States 1795-1905. 
a Ibid., 168. 

4 Ibid. 

6 Ibid., 169. 

6 Report of the State Commission of Permanent School Funds of Vermont, 32, quoted from Swift, 170. 

7 Permanent Common School Funds, 171. 



STATE AID TO PUBLIC SCHOOLS 127 

to equalize the cost of maintaining schools and to equalize also the oppor- 
tunities of education throughout the state .... The second aim 
revealed in the more complex methods of apportionment is to encourage 
local communities to employ supervision, more teachers, to increase aver- 
age attendance, to increase taxation for schools and the number of 
schools." 8 

He finds that the results of these funds have been: first, to make state 
provision for a fund to pay teachers' wages, and hence to increase the 
efficiency of teachers; 9 second, to secure returns to the state from local 
school units, and thus to establish a state system of schools and to lay 
the foundation for state supervision of common schools; 10 third, to decrease 
the "ratio of the total common school revenues derived from the income 
of the permanent common school funds; 11 fourth, to improve school build- 
ings; 12 fifth, to raise the standards of educational opportunities and facili- 
ties by securing 13 

1. Better courses of study 

2. Enforcement of truancy laws 

3. Libraries, apparatus, free texts 

4. Transportation and tuition of pupils 

That part of the state aid in Minnesota which is the income from the 
permanent school funds falls directly in the field of Swift's discussion and 
conclusions. 14 But before attempting to apply any of his discussion 
directly to the state situation we may raise the question whether it is fair 
to judge any of the rest of the state aid of Minnesota by standards the 
same as or similar to those by which the income from the permanent school 
funds is judged. 

The essential characteristics of a permanent school fund are only two — 
first, permanency, and second, state control with respect to the distri- 
bution of the income to local units. How does special state aid in Minne- 
sota compare in these respects with any permanent fund? The state has 
done three things through this special aid; (1) It has created a source of 
aid for its public schools; (2) It has maintained that aid, increasing it at 
times, over a series of years, thus making it tend to become in essence a 
permanent or at least a fixed source upon which the schools come to rely; 
(3) It continues to reserve to itself and to its duly authorized agents the 
determining of the conditions under which local units may receive this 
aid. Such aid and such revenue may be justly judged along with the 

s Ibid., 190. 

* Ibid., 191. 
"Ibid., 194-7. 
" Ibid., 198. 
" Ibid. 
18 Ibid.. 199. 
"Ibid., ch. 31. 



128 RAYMOND ASA KENT 

permanent school funds with respect to the results it has achieved, and 
without injustice be subjected to similar tests of aims, methods of distri- 
bution, and efficiency in general. 

The permanent fund income may itself even be supplemented by a 
form of special subsidy. This is precisely what has been done in Minne- 
sota. Since 1887 the income from a state one-mill tax levy has been 
added annually to the permanent fund income and the total sum has 
been distributed as if it all were the income from the permanent fund. 15 
Certainly it would be inconsistent and illogical to attempt to make a 
division here and judge results by two sets of criteria just because the 
money, though all distributed in the same manner, represents two differ- 
ent sources of income. 

But Swift concludes, and forcefully presents the facts on which his 
conclusions are based, 16 that the existence of a permanent school fund 
and the distribution of its income do not imply, ipso facto, the attempt to 
reach a given aim or set of aims, or the existence of any given restrictions 
by which the desired aims are to be attained. It is quite clear then that 
the case of the permanent fund being augmented by subsidy, as it were, 
is not the only instance where school support from sources other than 
the permanent fund may justly be amenable to examination on the same 
basis as the fund itself. 

For fifty-five years preceding this study 17 the schools of the state 
have been recipients of the benefits of a permanent fund. The only change 
of importance that has been made in this fund during this more than half 
century is that its income has been augmented by a state one-mill tax 
levy. This change was made twenty-six years prior to our investigation. 
For thirty-five of those fifty-five years the high schools of the state have 
been a separate group receiving special aid. The only important changes 
in this aid in the last thirty-three of those thirty-five years have been the 
increases in amount and the changes in requirements prerequisite to its 
bestowal. For the last eighteen years of the fifty-five, special aid has been 
given to the group of schools called graded. The only changes in their 
aid have been those similar in nature to the changes for high schools. 
And finally, during the last fourteen years, rural schools have received 
special state subsidy, with similar changes accompanying this aid. 

The consistency of the state's policy in aiding its school, the unbroken 
series of years over which this policy reaches, indeed every important 
factor involved makes the whole situation the same as it might have been 
had the income from the permanent fund grown so fast that it had been 
distributed to the above named divisions of schools in the changing avenues 

11 General Laws, 1887 sec. 3, sub-ch. 84 of ch. 41. 

16 Permanent Common School Funds ch. 7. 

17 Since Minnesota was admitted as a state in 1858. 



STATE AID TO PUBLIC SCHOOLS 129 

described. In the sixty-eight years between 1835 and 1903 the modifica- 
tions in the bases of the permanent fund apportionment for Massachusetts 
represent far greater change and variability than does the whole history 
of special aid in Minnesota. 18 

There is therefore no justifiable reason, either theoretical or practical, 
why all state aid here considered may not be grouped together and judged 
by similar standards and principles. 

The present three forms of special aid to clearly defined, exclusive 
groups of schools seem to indicate three different stages of advance or 
development in the principle of state subsidy. Special aid as administered 
to high schools reveals no examples of overweening local complacency and 
community lethargy. The correlation tables show no clear tendency in 
this direction. The integrity of graded schools is not so unmistakably 
marked. Neither is there revealed any clearly defined tendency on their 
part toward using state aid to decrease local tax levy. Graded schools 
seem to represent the middle stage of development. The rural schools 
on the other hand are in a precarious situation. They are actually given 
what they do not need. They are consequently dangerously near the 
condition which caused a positive decline in the common school system 
of some of the states earlier in our history, as Swift points out. There 
is a point beyond which state subsidy tends distinctly to pauperize a 
local community. Special aid to rural schools, distributed on its present 
basis, is having this very effect upon the group of schools that receive it. 

The causes are not far to seek. In the first place it is very clear from 
evidence both within the schools and within the legislative field, that 
appropriations to these schools are made with no real reference to any 
existing conditions. In the second place, the distribution of the aid is 
very inadequately supervised. The difference in this respect between 
rural schools on the one hand and graded and high school systems on 
the other is significant. Special aid to each of the latter was identical in 
time with provision for special supervision. A special inspectorship for 
graded schools was created at the same time, as aid for them, and for high 
schools soon after special aid for them. Every one of these schools has 
been visited by its inspector every year until very recently. 19 The state 
has made very definite requirements for these schools. 20 They have be- 
come used to the enforcement of these requirements and to gradually but 
constantly rising standards. The state has known what could be justly 
asked of the schools because it was in constant close touch with them. 
Instead of communities saying what they are or are not willing to do, 

18 Cf. Permanent Common School Funds, 184-5. 

19 Assistant inspectors for both high and graded schools have been added since the time of this study. 

20 Cf. Notes on high schools and graded schools in Appendix A. 



130 RAYMOND ASA KENT 

they are now told what is expected of them. They are so satisfied with 
results as they see them that they practically never refuse compliance. 

What is the condition with respect to rural schools? Thirteen years 
before this study, they began to receive special aid. During the inter- 
vening time what special supervision or inspection have they had as a 
companion measure to the aid? Absolutely none that can begin to com- 
pare with the inspection of the other groups of schools. Who has deter- 
mined conditions prerequisite to their receiving aid? With respect to 
length of the school year and grade of the teachers' certificate, the legisla- 
ture, in all other standards, the state department of education, and the 
legislature has even gone so far as consciously to handicap the depart- 
ment in stating its requirements — the attendance at a school shall be no 
determining factor in deciding the amount of aid any school may receive. 21 

What means has the state department of enforcing its requirements, 
or even of knowing that they are met by the schools to whom the aid is 
given? The certification of the county superintendents in whose counties 
are located the schools applying for aid. What kind of a state inspector 
of rural schools does the county superintendent make? 22 In many counties 
there are so many rural districts that it is a physical impossibility for super- 
intendents to make the round once a year, make real inspections, and do 
the other work expected of them. 23 This would not be so bad if this in- 
spector and inspection were expert and untrammeled. But it should be 
remembered that this superintendent occupies not only an educational 
position but a political one as well. He has a clientele to satisfy or else 
he runs the risk of losing his position. In some cases he is more of an 
educator than a politician. There have been and are notable examples 
of those who are real educators in these positions and on whose action 
no shade of administrational expediency falls. In such a system there 
are other county superintendents, unfortunately, for whom the education- 
al activities are rather formal and the political interests the more practical 
and urgent. Irregularities in reporting rural schools for special aid are 
bound to exist when inspectors are the political making of the patrons 
inspected. This combination of conditions lays a strong temptation before 
every county superintendent. A system of state aid of which this can be 
said is not only wholly unjustifiable, it is positively nefarious. 

Not only does special rural school aid smell of the "Pork Barrel," not 
only is it pernicious as a policy of republican government, but it is also a 
most ample reward for the perpetuation of a very unsatisfactory and even 
obsolete institution. The rural school is not obsolete, neither is the one- 
room school. But the special aid as it is at present given to these schools 

21 General Laws, 1911 ch. 60, sec. 1. 

22 Cf. Cubberley The Improvement of Rural Schools ch. 4. 

23 The writer personally knows of districts unvisited for several years consecutively by the county 
superintendent. 



STATE AID TO PUBLIC SCHOOLS 131 

in Minnesota by prerequisite requirements creates no material betterment 
of the rural school situation. This is exactly opposite to the results which 
have come from special aid to high and graded schools. They have accepted 
more stringent requirements from time to time. At last, special depart- 
ments of industrial work seem to come in a measui j as their reward. 
The latter schools have been attempting to keep abreast of educational 
advancement and to discharge their debt to their educational constituents. 
It is true that aid to graded and high schools has been increased and 
special aid for industrial work has been added. But aid to rural schools 
has likewise been increased, — in the light of the schools' needs, ridiculously 
increased. 

Evidence regarding the course of study and subject matter taught is 
not definite. From answers to a questionnaire sent out by the Commis- 
sion one can conclude with very little chance of error that with exceptions 
so rare as to be striking, rural schools follow no courses of study. The 
lists of the text books now in use seem to indicate a remarkably wide spread 
satisfaction with texts used by previous generations. 

It makes no difference from what view-point the problem is approached, 
similar facts appear. One is compelled to conclude that the present 
method of distributing special aid to rural schools has little or no justi- 
fication whatever. It is a detriment to the educational advancement of 
the state and a positive handicap to the very group of schools which it is 
presumed to benefit. 

Special aid to high and graded schools, as was pointed out in the sum- 
maries of the respective chapters on them, has really made these groups 
of schools what they are to-day. As has already been pointed out, how- 
ever, there is a very definite need of readjustment of these aids with 
respect to well defined aims and standards. What is expected of a dis- 
trict in the way of educational accomplishment? What ought such accom- 
plishments to cost a district? How able is a district to meet these costs? 
How much encouragement and assistance does it deserve from state sub- 
sidy? All these questions should be answered in determining any just 
basis for state aid distribution. 

Aid to special industrial departments has without doubt been of great 
benefit to the schools and the children of the state. There is one imminent 
danger in connection with it, however. There is lack of definite aim and 
of adequate standardization in its distribution. In effect this will in the 
long run cause results the same as lack of proper supervision would bring. 
In fact the two things are in the end equivalent. In so far as supervision 
or inspection, well intentioned as it may be, lacks definite, adequate stand- 
ards of measurement, there is a lack of real supervision. The problem of 
the state's aid to industrial needs is a thorough, impartial reorganization on 



132 RAYMOND ASA KENT 

the basis of standards to be determined and defined in terms of the actual 
conditions of the state's need in this field. No other basis can prove 
satisfactory in securing the results desired or expected. 

The apportionment aid has grown to be no small item. It is distri- 
buted on a basis of relatively less requirements than when it was first 
instituted. The income from the permanent fund will doubtless be dis- 
tributed on the basis of ' 'scholars" for some time to come since the con- 
stitution requires it. But since it has been proved that the legislature 
has the right to interpret what constitutes a "scholar," requirement bases 
for distributing this aid may be changed from time to time. Standards 
may presumably be advanced here as in connection with any other aid 
given. But the income from the one-mill state tax is wholly within the 
state's present control. Its continued distribution on the same time-worn 
basis as the permanent fund income is surprising to say the least. Such 
a method of distribution is but helping to perpetuate an antiquated, in- 
effective method of state aid to public education. The dynamic possi- 
bilities of this amount, redirected on a carefully determined basis, are 
very great indeed. 

This study began with the purpose of answering a question, of solving 
a certain problem. Anyone who has followed it so far must be clearly 
convinced that the attempted solution of the main problem has raised 
many others of great importance but which remain yet unsolved. It was 
not the purpose in presenting this study to include in it any detailed scheme 
of state aid. That is quite another matter. Though it is of immeasurable 
importance, it is quite outside the bounds of this work and will not even 
be touched upon here. 

The study clearly shows that: 

1. The state includes communities of widely varying ability in main- 
taining schools. This is true for each of the three groups of communities 
included in the main divisions of schools as well as for the state at large. 

2. The present method of distributing the apportionment aid is vener- 
able, rather than effective for achieving any particular purpose. 

3. Special state aid is not distributed according to local needs among 
any of the three classes of schools, or according to the needs of industrial 
departments. 

4. Special state aid as administered in Minnesota is a positive detri- 
ment to the rural schools. 

5. Developmental changes of conditions in the high and graded school 
situations make the present plan of special aids to these schools out of date. 

6. Special industrial aid is not at present adjusted to the actual needs 
of the departments assisted as shown by the actual costs of these depart- 
ments. 



STATE AID TO PUBLIC SCHOOLS 133 

7. The state does not need greater appropriations for its public schools. 

8. The urgent present need with respect to state subsidies for public 
schools is the careful formulation of a policy of aid to its schools and of 
objective standards according to which the aid will be distributed. 

9. The future possibilities of public school development by a carefully 
worked out redirection of the present total amount of aid, with frequent 
rigid checking of results, are beyond computation and seem almost im- 
measurable. 



APPENDICES 



APPENDIX A 1 

HIGH SCHOOL BOARD RULES RELATING TO HIGH AND GRADED 

SCHOOLS 

HIGH SCHOOLS 
1. APPLICATION FOR STATE AID 

a. Applications shall be made on the official blank and not later than August 1 
of the school year for which aid is asked. 

b. Applications shall be referred to the high school inspector. He or an assist- 
ant shall visit such schools during the ensuing year, and the inspector shall submit 
a special report to the high school board at the next annual meeting. 

c. The inspector shall not recommend the listing of schools in districts having 
an assessed valuation of less than $200,000 or a total enrollment of less than 200 pupils. 
The assessed valuation of associated territory may be counted. 

d. High schools hereafter listed are required to maintain two industrial depart- 
ments in charge of teachers holding special industrial certificates issued by the super- 
intendent of education. 

e. A state school shall be defined as a school which has received state aid to high 
schools, and is under the supervision of the high school board. The application of 
a school for supervision does not confer a right to the name before state aid has been 
granted. 

2. GRANTING STATE AID 

a. At the annual meeting following a year during which a school has been under 
supervision, the high school board, taking into consideration the report of the inspec- 
tor, the report of the examiner, and such other information as may be at hand, shall 
grant state aid to schools whose work and organization are satisfactory and give 
promise of permanency. By provision of the law, no school receives aid in excess 
of the amount expended in carrying out the purposes of the act, exclusive of the 
cost of buildings and repairs thereon. 

b. The high school inspector shall report on the yearly expenditure of each high 
school. The special report shall include: 

(1) The part of the superintendent's annual salary in excess of $600. 

(2) The salaries of high school instructors. In case of instructors giving 
part time to high school work, proportionate credit shall be given, but in case 
the eighth grade is combined with the high school for purposes of instruction, 
the entire salary of at least one instructor shall be charged to grade work. No 
part of such salary shall be counted in reckoning high school expenditure. 

(3) The cost of library fixtures and library books. No credit shall be given 
for expenditure already balanced by gift or by state aid to school libraries. 
School boards are at liberty, of course, to make any purchase they may desire, 
but no credit shall be given for the purchase of subscription books or expensive 
sets unless the inspector's approval shall have been secured prior to such purchase. 
Free texts for ordinary class use shall not receive credit. 

(4) The cost of laboratory fixtures and apparatus. No credit shall be given 
for charts, for unusual or expensive apparatus, for sets of apparatus, or for any 
devices sold by traveling agents, unless the approval of the inspector shall have 
been secured prior to such purchase. 

1 State of Minnesota, Department of Education Bulletin no. 45. May, 1913. 



138 APPENDIX 



3. REMOVAL FROM THE LIST 



Schools failing to comply with these regulations or not maintaining the required 
standard of efficiency may be dropped from the list. The inspector shall advise the 
local superintendent and the clerk of such possible action. 

4. REQUIREMENTS FOR ADMISSION TO STATE HIGH SCHOOL LIST 

a. A suitable building providing not less than five grade rooms below the high 
school, and high school quarters consisting of at least an assembly room, a recitation 
room for each instructor, a laboratory and an office. The conditions for health and 
other sanitary appointments, including toilets, water supply, and disposal of sewage 
shall conform to the rules made by the superintendent of education. All school 
buildings hereafter constructed, remodeled or enlarged shall be equipped with a fan 
system of ventilation, sanitary drinking fountains, and flush toilets. Plans for new 
buildings or for reconstruction of old buildings must be submitted to the superintend- 
ent of education for approval before contract is let or work begun, according to 
provision in Section 6, Chapter 550, Laws of 1913. 

b. A well organized graded school, having not less than five distinct departments 
below the high school, and including not less than eight grades of elementary school 
instruction. 

c. An observance of the rules for the equipment of a graded school. 

d. A qualified superintendent having general charge of grading, instruction, 
discipline and care of building. 

e. A liberal schedule of salaries. 

f. Classes in four years of high school work, with a good prospect of classes to 
follow in regular succession. 

5. CONDUCT OF THE SCHOOL 

a. Students admitted to the high school shall have satisfactorily completed the 
common school branches. 

b. Permanent records shall be kept to show where each grade pupil belongs, 
and what work each high school student has completed. A system of card records 
is recommended. Special and annual reports are to be made by the superintendent 
and the clerk to the state inspector and the county superintendent of schools. 

c. The school shall hold sessions of not less than nine months each year. 

d. The high school shall be open, free of tuition, to non-resident pupils upon 
passing the examination required by law. 

Note: This rule does not apply to industrial departments for which special aid is granted. 

e. The high school department shall be placed in charge of a qualified principal. 
Not counting the superintendent, or the industrial teachers for whose departments 
special aid is granted, a special instructor shall be provided for each 30 students or 
major fraction thereof. In addition to the superintendent, every school shall employ 
at least two teachers, who shall give their full time to high school work. 

f. The superintendent shall be provided with an ample recitation room and an 
office. He shall have reasonable time in school hours for general supervision and 
shall teach not to exceed four classes daily, laboratory subjects to count double. 

g. School boards shall adopt a liberal policy in supplying the following library 
facilities and scientific equipment as rapidly as classes come forward to need them: 

(1) Material in sets for a four years' course in high school reading. 



APPENDIX 139 

(2) A botanical or zoological outfit of tables, inexpensive dissecting 
microscopes, one compound microscope, dissecting instruments, glass jars and 
alcohol or formalin for preserving material, etc. 

(3) Apparatus and equipment adequate to carry on a year's work in physics 
as outlined in manuals. 

(4) Suitable desks, chemicals and glassware for a year's work in chemistry. 

(5) A working school library for the use of students in the preparation of 
their daily work. It is better to equip the classes one or more at a time, and 
equip each thoroughly, than to scatter a small appropriation. The principal 
subjects which require assistance from a working library are: English litera- 
ture, general history, civics, political economy, senior American history, senior 
geography, physiography, chemistry, physics, zoology, botany, foreign lan- 
guages. 

h. The school board of each school shall issue diplomas to those students who 
shall be certified by the superintendent to have completed in a creditable manner 
the preliminary subjects and the work covered by twelve high school credits, a four 
years' course in English, reading and composition. A year's work in a subject is 
a credit. 

i. The superintendent shall receive a salary of not less than $1,200 a year. 
High school instructors shall be paid not less than $540 a year. 

j. The qualifications of teachers shall be those prescribed under "Requirements 
in Regard to Certificates of Teachers in High and Graded Schools." 

k. Before entering into contracts or paying salaries, school boards shall require 
all teachers and instructors to present their certificates to the superintendent for 
inspection and record. He shall keep this record on file in his office and shall fur- 
nish a copy of the same to the clerk of the school board. 

GRADED SCHOOLS 
1. APPLICATION FOR STATE AID 

a. Applications for state aid shall be made on the official blank not later than 
October 1st of the first year for which aid is asked. 

b. Applications will be considered by the state high school board at its annual 
meeting, when the inspector will report on schools whose applications have been 
received. 

2. REMOVAL FROM LIST 

Schools failing to comply with the requirements or neglecting to maintain a 
satisfactory standard of efficiency may be dropped from the list. The inspector 
shall advise the clerk or other officer of the school board of such possible action. 

3. BUILDINGS 

a. Suitable grade rooms for not less than four departments must be provided. 

b. The system of ventilation shall conform to the rules and regulations issued 
by the Superintendent of Education. 

c. New and remodeled school buildings of eight rooms or more must be equipped 
with a fan system of ventilation, sanitary drinking fountains, and flush toilets. 
Plans for new buildings or for reconstruction of old buildings must be submitted 
to the superintendent of education for approval before contract is let or work begun, 
according to provision in Section 6, Chapter 550, Laws of 1913. 



140 APPENDIX 

4. CONDUCT OF SCHOOLS 

a. The school shall be in session nine months each year. 

b. Regular and orderly courses of study for eight grades, embracing all such 
branches as may be prescribed by the high school board, shall be maintained. 

c. The principal shall exercise general supervision over the school, direct the 
work of teachers, determine the grading, prescribe and give examinations, and per- 
form such other duties as the school board may require. 

d. Permanent records must be kept showing age, attendance, scholarship, and 
promotion of pupils. Special and annual reports are to be made by the principal 
and the clerk to the state inspector and the county superintendent of schools. 

e. The seating capacity of each school room shall be determined by allowing 
not less than eighteen square feet of floor space per pupil. 

f. The qualifications of teachers shall be those prescribed under "Requirements 
in Regard to Certificates of Teachers in High and Graded Schools." 

g. The salary of a principal of a graded school shall be at least $700 a year, 
h. The salary of a grade teacher shall be at least $450 a year. 

Note: The salary limit stated above becomes effective September, 1914. 

i. Before entering into contracts or paying salaries, school boards shall require 
the principal and teachers to present their certificates to the clerk for inspection 
and record. He shall place such record on file, after having satisfied himself that 
the principal and teachers are legally qualified and have complied with all the require- 
ments of the high school board. 

5. EQUIPMENT 
Each school shall have: 

a. A library of at least 500 volumes, containing all needed reference books to- 
gether with special libraries for grade work in history and geography. Additions 
must be made each year and not less than twenty-five dollars shall be expended annual- 
ly for this purpose. 

b. Necessary wall maps, charts and globes for work in history and geography. 

c. At least three sets of supplementary readers for each grade. 

d. An international dictionary or its equivalent, and several copies of smaller 
dictionaries for use in intermediate and grammar grades. 

Note: In order that there may be some uniformity as to what constitutes a satisfactory equipment, 
it is suggested: 

1. That for work in geography each school be supplied with a globe, preferably one suspended from 
the ceiling and not less than eighteen inches in diameter, and the following maps : The world on Mer- 
cator's Projection, the Eastern and the Western Hemisphere, the United States, North America, South 
America, Europe, Asia, Africa, Australia, Minnesota. The three first named should be of a larger size 
than the remaining seven. 

2. That for work in United States history each school be provided with a large outline map of the 
United States painted on slated cloth. With the aid of colored crayons very effective use can be made 
of this map. 

3. That the supplementary reading be made up wholly of books not arranged in series for grades. 

4. That one International Dictionary, or its equivalent, be considered sufficient for a school of six 
departments or less. 

5. That pupils be encouraged to purchase small dictionaries after they have been admitted to the 
fourth grade, and that, in places where it is considered inadvisable to make this requirement, the school 
board furnish one dictionary for every four pupils above the third grade. 

6. REQUIREMENTS FOR SPECIAL GRANT $500 FOR HIGH SCHOOL DEPARTMENT 

In addition to meeting the preceding requirements each school shall 

a. Have a suitable building of not less than six rooms, including a laboratory. 



APPENDIX 141 

b. Employ not less than six teachers during the entire year for which aid is 
granted. 

c. Provide the principal a suitable office in addition to his regular recitation 
room, and allow him not less than two periods daily during school hours for general 
supervision. 

d. Place the assistant principal in charge of the high school department, includ- 
ing grammar school students seated in the room. 

e. Pay the principal a salary of not less than $1,000 a year, and teachers doing 
high school work, not less than $540 a year. 

Note: The salary limit of the principal becomes effective September, 1914. 

f. Enroll not less than fifteen pupils in the high school department. 

g. Maintain classes in not less than two years of high school work of such char- 
acter that it will admit students to the third year of any state high school. 

h. Adopt a liberal policy in making provision to supply the following library 
facilities and scientific equipment as rapidly as classes come forward to need them: 

(1) Material in sets for a four years' course in high school reading. 

(2) A botanical or zoological outfit of tables, inexpensive dissecting micro- 
scopes, one compound microscope, dissecting instruments, glass jars and alcohol 
or formalin for preserving material, etc. 

(3) Apparatus and equipment adequate to carry on a year's work in phys- 
ics as outlined in standard manuals. 

(4) Suitable desks, chemicals and glassware for a year's work in chemistry. 

(5) A working school library for the use of students in the preparation of 
their daily work. It is better to equip the classes one or more at a time and 
equip each thoroughly, than to scatter a small appropriation. The principal 
subjects which require assistance from a working library are: English literature, 
general history, civics, political economy, senior American history, senior geog- 
raphy, physiography, chemistry, physics, zoology, botany, foreign languages. 
i. Require the completion of work necessary to obtain sixteen credits before 

issuing a diploma to any of its students. A year's work in a subject is a credit. 

SCHOOLS RECEIVING $2,500 AND $1,800 INDUSTRIAL AID 

The following rules apply to both classes of schools, except as specifically stated. 
1. APPLICATION FOR STATE AID 

a. Applications shall be made before the first day of August of the first year 
for which aid is asked on the blank form prepared for the purpose. 

b. Each school must be listed provisionally by the high school board before it 
begins work. If at the end of the first semester it has complied with the conditions, 
it shall be officially designated for that year. 

c. Each school district of less than eighteen sections listed for the $2,500 aid 
is required to effect association with rural school districts so as to embrace within 
its territory at least eighteen sections. 

2. AWARD OF AID 

a. The annual award shall be made at the regular August meeting of the high 
school board and shall be based on a compliance with the statutes and the rules of 
this board relative to amount of aid for which the school has qualified. 

b. Each school qualifying for $2,500 aid shall receive not exceeding $2,500 per 
year, and in addition thereto $150 per year for each associated rural school district, 



142 APPENDIX 

but in no case shall the total amount received by any such school exceed two thirds 
of the sum actually expended upon such agricultural and industrial department as 
certified to the state high school board. 

c. Each school qualifying for $1,800 aid shall receive not exceeding $1,800 per 
year, and in addition thereto $150 per year for each associated rural school district, 
but in no case shall the amount awarded exceed the actual expenditure of the school 
for an agricultural department and a department of home economics or manual 
training as certified to the high school board. 

d. In reckoning aid, credit shall be given for 

(1) Salaries of special instructors — in case part time is devoted to this 
work corresponding credit shall be given. 

(2) Equipment, including tools and apparatus. 

(3) Supplies, including seeds. 

(4) Labor and team work. 

(5) Reference books. 

(6) Extension work in rural schools and among farmers. 

(7) Transportation of instructors. 

3. COURSES OF STUDY 

a. The industrial courses required by law and covered by these rules shall be 
maintained throughout the school year. 

b. The work in agriculture shall include: 

(1) A course based on textbooks, bulletins, and lectures. Agronomy and 
animal husbandry shall be given not less than a year each. It is desirable that 
botany, chemistry, zoology, and physics should be given an agricultural trend, 
but these subjects shall not be counted as a part of the four-years' course in 
agriculture. 

(2) A general course of one year to include gardening, fruit growing, dairy- 
ing and poultry raising. 

(3) A laboratory course, including physical examination of soils, prepara- 
tion of weed-seed cases, testing of seeds, testing for butter fat, grain judging, 
stock judging, etc. 

(4) Special work along some line of local interest, such as dairying, corn 
breeding, small grain, potatoes, fruit, meat products, poultry, etc. The school 
shall not only maintain a standard of general efficiency, but shall develop strength 
in chosen specialty. 

(5) The organization of institute work in cooperation with extension divi- 
sion of the College of Agriculture of the State University. 

(6) A short course of three months. In case local conditions are unfavor- 
able, the course may be discontinued with the written consent of the inspector. 

4. INSTRUCTORS 

a. In a school receiving $2,500 aid the corps shall include not less than three 
special instructors, one qualified to teach agriculture, one shop work, and one home 
economics. The entire time* of each instructor shall be devoted to his department. 

b. In a school receiving $1,800 aid two industrial instructors shall be employed, 
one qualified to teach agriculture and one to teach either home economics or manual 
training. These instructors shall be in addition to the instructor per thirty students 
required for state high school aid. 



APPENDIX 143 

c. The principal of a graded school having not to exceed five grade teachers 
may teach one industrial subject. In such case he must have the qualifications of 
an industrial teacher. 

d. The agricultural instructor shall be employed for the full calendar year of 
twelve months. The year of employment shall begin August 1st. His entire time 
shall be given to the teaching of agriculture and extension work, provided that in 
schools receiving $1,800 aid the instructor in agriculture may with the written con- 
sent of the inspector be permitted to teach one additional subject, particularly one 
related to agriculture. This rule shall not prevent the principal of a graded school 
from acting as instructor of agriculture. 

e. The instructor shall be provided with laboratory facilities. During the fall 
and the spring of the year he shall have not less than a continuous half day for out- 
side and extension work. He shall make a close study of local conditions and attend 
markets, horticultural meetings, meetings of creamery and stock-breeding and other 
associations, and such other gatherings as afford opportunity to make the acquaint- 
ance of farmers. 

f. The instructor in agriculture may not direct manual training, but in schools 
receiving $1,800 aid instructors in manual training or home economics may, if quali- 
fied, devote part time to academic work. The work in home economics may be 
divided between two instructors, one for sewing and the other for cooking. 

g. The legal qualifications of instructors shall be those prescribed under "Require- 
ments in Regard to Certificates of Teachers in High and Graded Schools." 

5. DEMONSTRATION PLOT 

Each school receiving $2,500 aid shall maintain a demonstration plot of five 
acres or more. This plot shall be owned by the school district or be held under a 
long lease. It must be kept free of weeds and in a state proper for cultivation and 
for demonstration purposes. The border shall be seeded down into a sward. A 
part of the plot shall be devoted to a permanent rotation of field crops of which a 
record shall be kept by the instructor. 

6. EQUIPMENT 

a. Agriculture. The instructor shall have one or more rooms exclusively for 
his work. The classroom shall be equipped with a well-arranged reference library, 
including bulletins, and facilities for displaying agricultural products. The labora- 
tory shall be provided with apparatus for testing soils, milk, and seeds. The agri- 
cultural quarters shall be easily accessible to visitors or persons bringing in farm 
products. An outside entrance is desirable. 

b. Home Economics 

(1) In schools receiving $1,800 aid a special room shall be fitted up with 
tables, cooking utensils, table service, cupboards, and conveniences for storing 
kitchen supplies. An adequate equipment shall also be provided, including 
cutting tables, one or more sewing machines, material suitable for patterns, 
the materials required for exercise, and such implements as are required in the 
usual sewing room. 

(2) In schools receiving $2,500 aid the quarters shall include a dining room 
or administration room, a kitchen laboratory, and a room equipped with tables 
and machines for sewing. 



144 APPENDIX 

c. Manual Training 

A special room for woodwork shall be provided with benches and the neces- 
sary tools. Material for exercises shall be supplied free of charge. Lumber for 
articles taken home may be charged for at cost. Schools receiving $2,500 aid 
shall provide facilities for blacksmi thing. 

d. The rooms used for industrial purposes must be approved by the inspector. 
Where but one room is used for a department not less than 700 square feet of floor 
space shall be considered adequate, and all rooms must be properly lighted and well 
ventilated. 

e. Schools receiving $2,500 aid shall maintain a farm building large, enough to 
store supplies, tools, and machinery, in case the plot is remote from school building. 

7. CREDITS 

If the work be done satisfactorily, two periods given daily to an industrial sub- 
ject or subjects for one year shall count as a credit. 

Circular No. 3, 1913 
To Superintendents and Principals of High, Graded, and Consolidated Schools: 

Relating to Industrial Departments in high, graded, and consolidated schools 
and to Training Departments in high schools. 

State Aid 

Industrial. — For departments in agriculture, home economics, and manual 
training, under Chapter 82, -Laws of 1911, as amended during the present 
session $2,500 

For departments in agriculture and either home economics or manual training 

under Chapter 91, Laws of 1911, as amended during the present session. . . .$1,800 
(Present aid, $1,000) 
For training departments for rural teachers — applicable only to high schools. . . .$1,000 
(Present aid, $750) 
The present Legislature has also approved an act increasing the annual aid for 
high schools from $1,750 to $2,200, and for graded schools from $600 to $750. This 
increase does not apply to the present school year, but will be included in the distri- 
bution of aid in 1914. The same rule applies to the increase in the industrial aid 
from $1,000 to $1,800, and that for training departments from $750 to $1,000. For 
the present school year the special aid will be allowed on the basis of the amounts 
provided in the old law. 

At its meeting on April 5, the High School Board voted: 

1. That high schools, graded schools, and consolidated schools be notified of 
the requirements fixed by recent legislation for earning annual aid of $2,500, 
$1,800, and $1,000. 

2. That schools desiring to continue present special departments, or to establish 
such departments next school year, be requested to make application in writ- 
ing to the State Superintendent, or one of the Inspectors. 

Schools maintaining any of these departments during the present school year, 
as well as those planning to establish industrial or training departments for next 
school year, will file their application with the State Superintendent, or with one 
of the Inspectors, prior to May 1. Proper blank applications are sent with this letter. 



APPENDIX 145 

In order that schools may understand the requirements of the law, and the rules 
of the High School Board applicable to industrial and training departments, there 
are forwarded with this letter copies of the laws in their existing form, as amended 
by the present legislature. The new part of the law is indicated in bold type. 

Schools Receiving $2,500 Industrial Aid 

(Chapter 82, Laws of 1911, as amended at present session) 
The general provisions of law and the requirements of the State High School 
Board are practically the same as they have been in the past. 

In order, however, to increase the usefulness of the industrial departments, 
slight modifications have been made, to which attention is called. The High School 
Board, in considering the school demonstration plot, has concluded to require that 
this shall be owned by the school board or held under a long lease. In this way it 
will be possible to carry on consecutive work, which ought to prove of value to the 
community. The Board has also deemed it advisable to require of the schools that 
the facilities for kitchen and sewing shall include a dining room or administration 
room, a kitchen laboratory, and a room equipped with table and machines for sewing. 
Special attention should be paid at this time to the rule of the High School 
Board which provides that the agricultural director shall be employed for the full 
calendar year of twelve months, and that the year of his employment shall begin 
August 1st. 

Schools Receiving $1,800 Industrial Aid 

(Chapter 91, Laws of 1911, as amended at present session) 
Under this act each school is required to maintain a department of agriculture 
and also a department of either home economics or manual training. The present 
legislature has increased the amount of state aid from $1,000 to $1,800. These 
schools are entitled to the benefits under the association feature and the tuition 
feature, which the previous law accorded only to the schools drawing $2,500 state 
industrial aid. In addition to the regulations which have governed this class of 
schools, it should be noted that in each high school, two industrial teachers, in ad- 
dition to the instructors per thirty students required for the state high school aid, 
shall be employed. It is also well to remember at this time that the instructor in 
agriculture must devote his entire time to the teaching of agriculture and to extension 
work. In schools where the agricultural work is exceptionally light, the inspector 
under whose charge the school is placed is authorized to allow the instructor to teach 
an additional subject, particularly one related to agriculture. The written per- 
mission of the inspector must be secured, however. The technical qualifications of 
instructors in these departments rcmst be adhered to rigidly, and no requests should 
be made to the State Superintendent for a special permit, unless the application is 
one of exceptional merit. In every case it seems proper that the school board or 
superintendent shall present the request for a special permit for the instructor, rather 
than expect the instructor to make the application. 

In order that the instructor may have ample facilities for doing his work, it is 
necessary that he should have a laboratory for the exclusive use of his department. 
During the fall and spring of the year he should be given a continuous half day for 
extension work and outdoor work in connection with his department. 



146 APPENDIX 

High School Training Departments Receiving $1,000 Aid 

(Section 1420, Revised Laws, 1905, as amended at present session) 
Aid for training departments is increased to $1,000, but only such amount will 
be awarded as is spent for the department. Credit will be given for the amount 
expended, under the following heads: 

1. Salary of the instructor 

2. Equipment of the room 

3. Expenditure for department library 

4. Transportation of teachers and students visiting the rural schools. 
Otherwise, the rules remain without material change. 

April 15, 1913. C. G. Schulz, 

Superintendent. 
The Rules of the State Department of Public Instruction governing rural school 
aid at the time of this study are reproduced herewith. 

State Aid, January, 1913 — Bulletin No. 40 

STATE OF MINNESOTA 
Department of Public Instruction 

Rules and Regulations Governing semi-graded schools, and rural schools of Classes 
A, B, and C, applying for state aid 

1. Semi-graded Schools 

To be entitled to state aid of $300.00, the law and the regulations of this Depart- 
ment require: 

1. School Term. Must be not less than eight months in each department 
during the year. 

2. Teachers. The principal must hold a state first grade common school cer- 
tificate, or one of higher rank, during the entire school year, and must have 
had sixteen months of successful teaching experience. Each of the other 
teachers must hold at least a state second grade common school certificate. 
Limited, or county certificates, are not sufficient. 

3. School Buildings. Must be suitable for school purposes, clean and well 
kept. Each entrance must be provided with foot scrapers and cocoa or steel 
mats. 

4. Equipment. Each school must be provided with the following: 

a. Blackboard. At least 100 square feet for each room. 

b. Unabridged Dictionary. Must be Webster's International, the Standard, 
or the Century. 

c. Abridged Dictionaries. Several copies — not less than five — of an abridged 
dictionary like Webster's Academic. 

d. Supplementary Readers. At least two complete sets of supplementary 
readers for each class or grade, in addition to the regular basic readers. 

e. Maps. A complete set of eight maps, and a state map, mounted on 
spring rollers, in a case — preferably a rotary case. 

f . Globe. A good twelve inch globe — suspension globe preferred. 

g. Desks. Each school must be equipped with suitable seats and desks, 
properly arranged and graded according to age and size of pupils. Only 
single desks should be used. 



APPENDIX 147 

h. Primary Material. Ample material for seat work in primary grades 
must be provided. The original expenditure should not be less than 
$10.00 and worn-out material should be replaced without delay. 

5. Library. Each school must have a well-selected library, suited to the school. 
Additions to the amount of $15 annually must be made. If the district 
purchases $15 worth of library books under the library law, the state will 
meet half this expense. Library books must be ordered before school begins, 
so that the pupils may have the benefit of them during the school year. 

6. Heating and Ventilation. Each school building must be adequately heated 
and ventilated in one of the following ways: The system must be constructed 
and installed in accordance with the requirements of this Department as 
defined in Appendix A of this bulletin. 

a. Steam plant. 

b. Basement furnace. 

c. Patented system of room heating and ventilation. 

d. Home-made system of room heating and ventilation. 
Note: See Appendix A for detailed specifications and requirements. 

7. Outhouses. For all schools not having indoor closets, the school board must 
provide and keep in good repair and in a cleanly and healthful condition two 
separate outhouses near the rear of the school grounds and concealed by 
lattice work and shrubbery. The buildings should have sufficient light and 
be supplied with sufficient toilet paper. They should be coated inside and 
outside with paint containing sand. The boys' outhouse should be provided 
with suitable urinals. 

8. School Grounds. Must be clean and present an orderly and attractive ap- 
pearance. Every effort should be put forth to beautify the school grounds 
by planting choice trees and shrubs. Care should be taken that the school 
grounds are kept free from weeds, ash piles, and other rubbish. 

9. Drinking Facilities. The water supply should be carefully safeguarded, as 
this is frequently more than any other one thing about the school a potent 
source for the spread of disease. 

A large earthen jar with tight cover and self-shutting faucet may be used. 
In this case each child should have his own drinking cup and use no other. 
The common drinking cup and water pail are prohibited by the State Board 
of Health. 

A better plan still is to provide a sanitary drinking fountain. This does 
away entirely with the use of drinking cups and there is a less opportunity 
for the spread of contagious disease. A good gravity bubbler drinking fountain 
can be obtained for about $20 and will last indefinitely. 
10. Progress. Each school must show that it has attained a high standard of 
efficiency and has made marked improvement during the year. 
II. Rural Schools 
Class A 

1. School Term. The school term must be not less than eight months during 
the year. 

2. Teacher. The teacher must hold a state first grade common school cer- 
tificate, or one of higher rank, from the beginning of and through the entire 
school year. 



148 APPENDIX 

3. Library. Each school must have a well selected library suitable for the 
school. Books purchased under the library law must be added annually to 
the amount of at least $10. If the school purchases $10 worth of library 
books under the library law, the state will meet half the expense. 

Note: In all other respects the requirements for Class A are the same as for semi-graded schools. 

Class B 

The requirements for Class B rural schools are the same as for Class A, except 

that the teacher may hold a state second grade common school certificate in 

place of a first grade. This she must have from the beginning of and through 

the entire school year. 
Class C 

The requirements for Class C Rural Schools are the same as for Class B, 

except that the school term is seven months. 

(Pages 3 to 6 inclusive, Bulletin No. 40, Minnesota Department of Public 

Instruction, January 1913) 

RULINGS OF THE STATE HIGH SCHOOL BOARD AND THE STATE DEPARTMENT OP 

PUBLIC INSTRUCTION 

I. High Schools. 

Note 1. The Board specified that the course of a high school should include 
elementary algebra, plane geometry, physiology, natural philosophy, English compo- 
sition, general history, Latin grammar and reader, two books of Cicero's Com- 
mentaries, "the writing of English in connection with the foregoing studies, with 
special reference to correct punctuation and use of capitals, also exercises in reading 
and declamation. When practicable, instruction in vocal music and drawing shall 
be added. For a full classical course an examination in the Greek grammar and 
reader will also be required, and by students taking this course, natural philosophy, 
physical geography, and physiology [not mentioned before] may be omitted." 
(Minutes of the State High School Board, April 18, 1878.) 

Note 2. The secretary is mentioned as the examiner (Minutes of the State High 
School Board, April 16, 1880) but the minutes clearly show that the different mem- 
bers of the Board, as well as several of the University faculty, were paid for acting 
in such capacity. 

Note 3. The Board required of those persons wishing to enter the high school 
examination in "orthography, reading, penmanship, arithmetic, English grammar, 
modern geography, United States History." The questions were sent out by the 
High School Board. (Minutes of the State High School Board, April 18, 1878.) 

Note 4. The Board did not put a limit upon the time which should be devoted 
to this high school work but suggested that it be not less than two years. (Minutes 
of the State High School Board, April 29, 1878) — "non-resident pupils upon ap- 
plication must be admitted without charge for tuition if they can pass the examina- 
tion prescribed." (Circular No. 1, State High School Board, 1878.) The Board 
directed that all examination questions should be made out by the state university 
and that the answers be marked by heads of the respective departments of the Uni- 
versity. (Mi'nutes of the State High School Board, May 5, 1879.) 

On account of the lack of appropriation for one year the High School Board in 
1879 decided to select schools to be aided upon the basis of: 

1. Date of application of the school. 

2. Location of the school in the state. 



APPENDIX 149 

3. Population of the districts adjoining the school. 

4. The greatest good to the state to be subserved by the appropriation. 
(Minutes, May 5, 1879.) 

There was some doubt as to the Board's right to impose such conditions. The 
Board conferred with the attorney general. (Minutes of May 12, 1879.) In his 
decision, dated May 13, the attorney general stated that the Board had no right to 
exercise any discretionary powers but was to accept "all public graded schools" — 
"In the order of their application." (Minutes of May 13, 1879.) 

Note 5. In May 1881 the following regulations were adopted: 

1. All districts receiving aid for high schools must maintain three departments 
below the high school corresponding to the primary, intermediate, and grammar 
departments, or their full equivalent. 

2. Departments were to be graded "in view of the attainment and ability of 
pupils, having definite courses of not less than seven years total, not less than one 
competent teacher, and a comfortable room for each department, furnished with 
suitable seats, blackboards, and other agencies of successful instruction. 

3. "There shall be a class in the high school, as the basis of state aid, consisting 
of not less than five members on the average for the term of the school year. This 
class shall pursue a course of study prepared by the High School Board, and the 
members thereof shall declare a purpose to complete their course; and no person shall 
be admitted to this class who has not passed a satisfactory examination under the 
direction of the Board of Education of such high school; such examination to be of 
sufficient extent and thoroughness to establish the ability of the applicant to pursue 
successfully the grades of the course. Instruction may be given to this class as well 
as to the other classes of the school in studies not included in this course, provided 
that such other studies do not interfere with the successful prosecution of the 'pre- 
scribed course.' " 

4. "The teacher or teachers of this class shall furnish the High School Board 
satisfactory evidence of scholarship sufficient to teach successfully all the branches 
included in the prescribed course of study." 

5. The school was obliged to accept non-residents into any of its departments 
if the applicant held a third grade certificate. All departments were obliged to have 
at least eight months of school. 

6. " . . . the class which is the basis of state aid shall be examined in the 
last term of each school year by the President of the University or an examiner ap- 
proved by him." 

The course of study adopted by the High School Board was: first year, arith- 
metic, elementary algebra, English grammar, geography, United States history, 
Latin grammar and reader; second year, natural philosophy, physical geography, 
elementary astronomy, general history, plane geometry, physiology, Caesar com- 
pleted, Cicero begun; third year, elementary chemistry, geometrical drawing, botany, 
ancient history, algebra to quadratic equations, solid geometry, Cicero completed, 
Vergil completed. Exercises were made obligatory in reading, writing and public 
speaking throughout the course and when practicable instruction in vocal music and 
freehand drawing. The time which the course should take was not limited except 
that it should not be less than three years. Successful completion of the above 
course, as attested by final examination of the Board, admitted to the freshman class 
of the University in the scientific course. "The schools desiring to enable pupils to 
prepare for classical courses will modify the above course as follows: 

(1) For the scientific studies of the second year substitute Greek grammar 
and reader, and 



150 APPENDIX 

(2) For the scientific studies of the third year substitute Xenophon's 

Anabasis with the usual collateral." 

"The work of the third year of the course will not be exacted as a condition of 

aid until after further notice from this Board. The completion of the first two years 

will secure admission to the sub-freshman class of the University." (Minutes of 

the State High School Board, May 2, 1881.) 

Note 6. When a school's application was accepted the school was entitled to 
aid upon completing its organization in the following respects: 

1. The principal was to be a graduate of a college, university, advanced course 
of a normal school, or must have passed satisfactory examination in the studies 
taught in the department. 

2. All pupils received into the high schools were required to pass satisfactory 
examination under the direction of the principal or the superintendent of the school, 
in reading, fourth reader; spelling, the same; arithmetic, including operation in the 
fundamental rules, decimal fractions and compound numbers; grammar, syntax 
and etymology of Green's Introduction, or its equivalent; geography, including a 
general knowledge of the location of the political divisions and climate of the world, 
and also a fuller knowledge of United States History. 

3. The high school was to consist of at least twenty pupils and be provided with 
a separate room and teacher. 

4. At the close of each term reports were to be made out by the principal to 
the secretary of the board as follows: 

(a) of the names of all students received, together with the standings of 
each student in the branches in which examination is required. 

(b) of the whole number attending. 

(c) of the number in each class. 

(d) of the classes prepared for examination. 

(e) of the money expended in support of the high school departments. 
(Minutes of the High School Board, October 27, 1881.) 

Note 7. It is definitely stated that the standings of schools was determined by 

1. The certificate of the principal. 

2. The "term" reports of the principal. 

3. The reports of the visitors. 

(Minutes of the State High School Board July 19, 1883.) 
Note 8. Pursuant to an inquiry from "the convention of superintendents and 
principals" the Board passed the following resolution: "That the amount of $400 
appropriated by this board under the statute should be expended for the purposes 
named in the statute, viz: for the encouragement of higher education; that for the 
purpose it should be set apart and not used to defray the general expenses of the 
schools; that the secretary be directed to require a report of the expenditure at the 
close of the year." (Minutes of the State High School Board, September 22, 1884.) 
Note 9. In 1885 the High Schools under the inspection of the State High School 
Board were divided into three classes: First class, schools that met the following 
requirements and conditions: 

1. Thoroughly organized elementary grades, pupils graded and regularly pro- 
moted, departments carefully superintended, and records kept. 

2. Thorough and complete preparation for the high school. 

3. The high schools were to be provided with apparatus for natural philosophy 
and chemistry sufficient for the course of study, and properly arranged and well kept. 

4. The course of study in the high school was to be pursued continuously in all 
years preparatory to the University. Final examinations were to be held in all 



APPENDIX 151 

subjects and "a reasonable percentage of certificates received." Graduations were 
to be made only upon the completion of the course and upon the certificate of final 
examination of the High School Board. 

5. The high school was to be provided with a library of books of reference and 
of general reading in history, biography, literature, and travel, such as was required 
by students in the pursuit of their studies and for their general information. 

The second class included all schools that were making decided progress in their 
organization, equipment, and supervision in all respects, although they had not yet 
reached the standards required for the first class. 

The third class included the schools in the "experimental stage" having the 
following general characteristics: 

1. Imperfectly graded elementary department. 

2. Preparation for high school imperfect in scholarly attainments and in com- 
mand of the elements of English in reading, composition, and arithmetic. 

3. Not adequate supply of apparatus and books. 

4. The course of study confined to the first and second years. 

The President of the University and the Superintendent of Public Instruction 
were made a committee to classify the schools annually. Schools of the third class 
were to make improvement sufficient for promotion "within a reasonable time." 
(Minutes of the State High School Board, May 16, 1885.) 

Note 10. In 1886 classification rules were changed in the following particulars: 

1. High schools of the first class were required to give final examinations only 
in those subjects required by the board. 

2. Classification of the schools hereafter was to be made for three years subject 
to revision in the discretion of the State Board. 

3. The third class cf schools was required to do only two of three years of work 
prescribed by the Board. (There is no record of division of the previously named 
subjects according to the years of the course.) (Minutes of the State High School 
Board, November 17, 1886.) 

On August 26, 1889, Number I of the rules passed November 17, 1886 was 
rescinded. 

Note 11. "After the present scholastic year no high school shall be credited 
with an enrollment of any pupils who have not passed the preliminary examination 
in orthography, arithmetic, geography, and United States history. All others in 
the high school shall be reported as conditioned and shall not be graduated without 
having passed in these branches." " — all examination papers shall be first examined 
as to penmanship and orthography and any paper not deserving a mark of 65 in 
spelling shall be thrown out without further examination than spelling." (Minutes 
of the State High School Board, December 22, 1891.) 

Note 12. On May 22, 1893, the Board voted to accept state teachers' certifi- 
cates in the place of the certificates of the Board. The legislature of this year pro- 
vided for more thorough inspection of the schools. The Board at this meeting pro- 
vided formally for an inspector to act as its agent and fixed his salary at $2,000 per 
year. On June 29 following, George B. Aiton was elected as Inspector of High Schools. 

Note 13. On November 18 of the same year the following recommendations 
were made by the Inspector and adopted by the Board: 

1. "That local boards be required to provide and adhere to a four-year college 
preparatory course as an essential feature of their high school work. 

2. "That boards of education be required to provide their superintendents with 
adequate office facilities, and to enable them to devote reasonable time to super- 



152 APPENDIX 

3. "That high schools of the first class be required to provide library facilities 
and to employ methods of instruction calculated to give power to use the same, in 
the study of English literature, history, and kindred subjects; also that schools of 
this class be required to provide laboratory facilities, and to employ methods of 
instruction on systematic individual laboratory work in the sciences — particularly 
in physics, botany and chemistry. 

4. "That schools accepted for supervision be known as 'schools under supervision,' 
and be not listed as high schools until they have been authorized to receive the special 
high school appropriation." (Minutes of the State High School Board, November 
18, 1893.) 

Note 14. On September 10, 1896 the Board voted that city superintendents 
would not be required to hold state certificates unless they were to teach classes in 
addition to performing the duties of a superintendent. 

Note 15. On the recommendation of Mr. Aiton the following was adopted by 
the Board: 

1. Classification into first, second, and third classes was abolished "and the 
inspector shall characterize the schools, either singly or by groups, both as to general 
efficiency and as to excellence in particular subjects." 

2. State examinations were made optional "except that the inspectors may 
require any school to take the regular state examinations as a part of their instruc- 
tion." (Minutes of the State High School Board, July 12, 1897.) 

Note 16. Rules and Regulations of the State High School Board., 
Organization of the Board 

1. The Governor shall act as President of the Board, the Superintendent of 
Public Instruction shall act as Secretary, and the President of the State University 
shall act as examiner. 

2. An annual meeting of the Board shall be held in August, as soon as practicable 
after the close of the fiscal year. 

3. Special meetings may be held at the call of the Secretary. 
Application for State Aid to High Schools 

1. All applications for state aid shall be made to the Secretary of the Board 
on the official blank prepared for that purpose, and shall be made not later than 
August 1 preceding the school year for which aid is requested. 

2. All applications shall be considered at the annual meeting of the Board, and 
schools considered worthy shall be accepted for supervision. Applications shall be 
considered at special meetings only in cases where delay in making application appears 
to have a valid reason. 

3. The applications of schools accepted for supervision shall be referred to the 
high school inspector, whose duty it shall be to visit such schools during the ensuing 
school year and to submit a special report to the high school board at the next 
annual meeting. 

4. At the annual meeting following a year during which a school has been under 
supervision, the high school board, taking into consideration the report of the in- 
spector, the report of the examiner, and such other information as may be at hand, 
shall grant state aid to schools whose work and organization may appear to be satis- 
factory and to give promise of permanency. 

5. A state high school is defined as a school which has received state aid to high 
schools and which is under the supervision of the high schocl board. The acceptance 
of a school for supervision shall not confer a right to the name before state aid shall 
have been granted. 



APPENDIX 153 

6. Schools whose terms of state aid have expired and which have made reappli- 
cation for aid, may be replaced on the list unconditionally or if unfavorable conditions 
come to the knowledge of the board, such as a change of local policy or the employ- 
ment of a superintendent and instructors whose qualifications are not well known, 
the school may be accepted merely for supervision, and the question of a place on 
the list may be deferred until the next annual meeting. 
Conditions Requisite for Acceptance 

The following requirements are in accord with the past experience of the board 
and are made with a view to secure conditions which render efficient work practicable 
and give promise of permanence. The increase of state aid to $800 justifies great 
care in admitting schools to the list. 

1. A comfortable building providing not less than four grade rooms below the 
high school, and high school quarters consisting of at least a main room, a large 
recitation room, a laboratory, and an office. 

2. A well organized graded school, having not less than four distinct departments 
below the high school, and including not less than eight years of elementary and 
grammar school instruction. 

3. A well chosen geographical library for the sixth and seventh grades. 

4. An adequate library of American history for eighth grade work. 

5. Suitable wall maps, a globe, and an unabridged dictionary for each of the 
upper grades. 

6. A liberal supply of reading material in sets for each grade. 

7. A well qualified superintendent having general charge of grading, instruction, 
discipline, and of the care of the building. 

8. A liberal schedule of salaries. It is not the policy of the high school board 
to prescribe salaries, but in the light of experience the board expresses a want of 
confidence yi the ability of a school to earn the state grant of $800 without salaries 
liberal enough to secure the services of a competent superintendent and instructors 
of approved experience. Experience also demonstrates that towns having a popula- 
tion of less than 1,000 people, and an assessed valuation of less than $200,000 are 
seldom justified in undertaking the expense of supporting a state high school. 

9. Scholarly classes, well started in at least the first two years of high school 
work, with a good prospect of classes to follow in regular succession, to maintain a 
full four years' course. 

Conduct of the School 

1. Students admitted to the high school shall have satisfactorily completed the 
common school branches. 

2. Permanent records shall be kept to show where each grade pupil belongs, 
and what subjects each high school student has completed. 

3. The school shall hold sessions of not less than nine months each year. 

4. A high school shall be open, free of tuition, to all non-resident pupils, upon 
passing the examination required by law. 

5. The high school department (including grammar school students, if necessary) 
shall be placed in charge of a well qualified assistant. 

6. The superintendent of the school shall be provided with an ample recitation 
room and office, and shall have reasonable time in school hours for general super- 
vision. 

7. Boards of education shall adopt a liberal policy in making provision to supply 
the following library facilities and scientific equipment as rapidly as classes come 



154 APPENDIX 

forward to need them. The amounts named represent the cost of respectable 
beginnings for small classes. 

a. Material in sets for a four years' course in high school reading, $50. 

b. A botanical or zoological outfit of tables, inexpensive dissecting micro- 
scopes, one compound microscope, dissecting instruments, glass jars and 
alcohol or formalin for preserving materials, etc., $80. 

c. Apparatus and equipment adequate to carry on a year's work in physics 
as outlined in the manual, $200. 

d. Suitable desks, chemicals, and glassware for a year's work in chemistry, 
$90. 

e. A working school library for the use of students in the preparation of 
their daily work. The amounts named below are sufficient, if expended 
with judgment, to equip the various classes fairly well. It is understood 
that none of these books are required until classes are formed that need 
them. It is better to equip the classes one or more at a time, and equip 
each thoroughly, than to scatter a small appropriation. The principal 
subjects which require assistance from a working library are: English 
literature, $100; general history, $100; civics, $40; political economy, $60; 
senior American history, $75; senior geography, physiography, $50; 
chemistry, $30; physics, $40; zoology, $50; botany, $75; foreign languages, 
$25, each. 

8. The board of education of each school shall issue diplomas to those students 
who shall be certified by the superintendent to have satisfactorily completed the pre- 
liminary subjects and the work covered by twelve high school credits and a four 
years' course in reading. A year's work in a subject is called a credit. 
Teachers 1 Qualifications 

1. The superintendent and high school instructors shall hold professional state 
certificates of the first class. These certificates are issued by the state superintendent 
of public instruction on the basis of a written examination, or upon the presentation 
of a diploma from an institution of higher learning, as provided in Section 3749 of 
the General Statutes of 1894. To obtain a professional state certificate, candidates 
must have taught with success in the state for at least one year. All candidates 
not graduates of a full four years' college course adjudged equal to that of the Univer- 
sity of Minnesota may obtain the professional certificate by examination only. Ex- 
aminations under the direction of the state superintendent of public instruction are 
held by an examining board twice a year, at the State University near the close of 
the University summer school, in August, and again at the Capitol in St. Paul during 
the Christmas holidays. As stated in rule three this regulation does not apply to 
superintendents and high school instructors who have had successful experience in 
state high schools previous to the adoption of these regulations. Professional cer- 
tificates from other states are not accepted. 

2. Candidates who have passed the required examinations or who hold a college 
diploma as above defined, but who are debarred from obtaining state certificates 
only by want of experience or shortness of residence may have their diploma or record 
of examinations endorsed for one year by the secretary of the High School Board. 
Candidates thus debarred from obtaining a professional state certificate and desiring 
the endorsement of the secretary of the High School Board for a year must submit 
therewith a legal certificate or license issued by local authority. 

3. Before entering into contract or paying salaries, boards of education shall 
require the superintendent and high school instructors to have their state certificates 
or diplomas or records endorsed by the secretary of the high school board with the 



APPENDIX 155 

words, "valid for state high schools." Boards failing to comply with this regulation 
shall, at the discretion of the high school board, forfeit their claim to state aid, provided, 
however, that nothing in these rules shall operate to disqualify a present instructor, 
of known scholarship and successful experience in high school work from continuing 
to hold a position in a state high school. 
State Examinations 

1. State high school board examinations are offered to all schools in the state 
twice a year, beginning on the last Monday in January and the last Monday in May. 
(Not all subjects are offered at the mid-year examination.) 

2. Ungraded schools arrange for examinations through their county superin- 
tendents. All other schools apply to the examiner of the state high school board for 
questions on blanks prepared by him for that purpose. 

3. All examinations must be conducted in strict compliance with the rules of 
the examiner. 

4. Examinations are optional for all schools, except that the inspectors may 
require examinations as part of their inspection. 

By order of the State High School Board 

J. H. Lewis, Secretary 

Department of Public Instruction. 
St. Paul, August 8, 1899. 

Note 17. "After 1903-4 no teacher will be accepted by the State High School 
Board as qualified to teach in such schools (specially aided high or graded) who has 
not at least a second grade state certificate, and no teacher shall be deemed qualified 
to teach above the sixth grade in such schools who has not at least a first grade state 
certificate." (Minutes of the State High School Board, August 23, 1902.) 

Note 18. The High School Board allowed permits to be granted by the state 
superintendent to expert teachers to teach their specialties. (Minutes of the State 
High School Board, March, 1903.) 

Note 19. By reason of a communication of August 21, 1903 from the attorney 
general the president of the Normal School Board was declared a member of the 
State High School Board, under Section 6, Chapter 86, Laws of 1895. (Minutes 
of the State High School Board, October 29, 1903.) 

Note 20. "Resolved that first, after this year, no credit be given in the state- 
aided high schools for the cost of fuel; and second, that the boards of education be 
required to provide at least one high school instructor for each thirty students or 
major fraction thereof." (Minutes of the State High School Board, May 14, 1904.) 

Note 21. On August 22, 1904 when special aid was distributed, out of the total 
of 151 high schools aided, eleven were allowed the state funds on the basis as stipu- 
lated by the rule of the preceding May, prorating their receipts to their expendi- 
tures. "Schools under the supervision of the State High School Board are required 
to employ teachers for primary grades who have had at least an elementary course 
in a state normal school or in professional training schools of rank equal to a normal 
school. This rule does not apply to teachers now at work in the primary grades of 
the schools, but is intended to regulate the employment of new teachers for such 
grades." (Minutes of the State High School Board, November 21, 1904.) 

Note 22. "A graduate from the advanced course of Minnesota state normal 
school shall be accepted as superintendent of a state high school on the recommenda- 
tion of the president of the normal school from which the student is graduated, the 
inspector of high schools, and the inspector of graded schools, provided that this 
recommendation is to be given only on satisfactory evidence that the applicant has 



156 APPENDIX 

attained high standing as supervisor and instructor." (Minutes of the State High 
School Board, April 21, 1905.) 

Note 23. Inspectors were instructed to report to the High School Board concern- 
ing the heating and ventilation of each school visited by them and request improve- 
ments where the same were found to be manifestly deficient. (Minutes of the State 
High School Board, December 11, 1905.) 

Note 24. Upon the recommendation of the state high school inspector the 
Board voted that after the school year 1909-10 the minimum salary of the superin- 
tendents should be $1,000. (Minutes of the State High School Board, April 28, 1909.) 

Note 25. On the recommendation of the state high school inspector, the follow- 
ing rule was adopted: "Every school shall employ at least two teachers in addition 
to the superintendent, who shall give their full time to high school work. (Minutes 
of the State High School Board, August 20, 1909.) 

Note 26. Beginning September 1912, high school districts were obliged to pay 
their superintendent not less than $1,200 annually. (Minutes of the State High 
School Board, January 22, 1901.) 

Note 27. After September 1912 the following rules were to be null and void: 
"Teachers in grades from the second to the sixth, inclusive, shall hold at least second 
grade certificates, teachers of seventh and eighth grades shall hold at least first grade 
certificates." In place of the above the following was to take effect September 1, 
1912: "Teachers of the second to the eighth grade, inclusive, shall hold at least 
first grade state certificates." (Minutes of the State High School Board, April 2, 
1910.) 

Note 28. "Resolved that the valuation and population of school districts which 
associate with a high or graded school under the Putnam Act shall be counted 
toward the valuation and population required by the rule of the High School Board 
for high and graded schools." (Minutes of the State High School Board, November 
4, 1910.) 

Note 29. On August 10, 1911 the requirement that a high school district have 
not less than 1,000 population was repealed. 

Note 30. "Beginning with the school year 1912-13 no superintendent shall be 
employed in connection with a high school who has not had at least two years' ex- 
perience as a teacher of graded work or in rural schools, or in supervising grade work. 
This rule shall not affect the reappointment of present superintendents." (Minutes 
of the State High School Board, October 25, 1911.) 

Note 31. "In schools seeking to earn $2,500 industrial aid the director of agri- 
culture shall give his entire time to agriculture and extension work; in schools seeking 
to earn $1,000, the director of agriculture shall give his entire time to agriculture and 
extension work, except that additional subjects, 'particularly those relating to agri- 
culture' may be authorized by the state inspector." (Minutes of the State High 
School Board, April 13, 1912.) 

II. Graded Schools 

Note 32. Regulations for graded schools to receive $200 aid. 

1. Applications considered in the order of their receipt. 

2. Nine months session. 

3. Each school to have not less than three "full-sized, cheerful, well-kept rooms." 

4. Well organized graded school, having not less than three distinct departments. 

5. Each school to pursue a course of study corresponding essentially to the 
graded course in the high school manual. 



APPENDIX 157 

6. Upper or grammar school department to be open, free of tuition, to non- 
resident pupils, subject to regular entrance examinations at the discretion of the prin- 
cipal. 

7. Each school to be "supplied with maps, dictionary, a globe, charts, primary 
material, and supplementary reading befitting an intelligent, progressive manage- 
ment." 

8. "The school shall build up a library well supplied with books for the study 
of geography and American History." 

9. It shall annually present a class, properly prepared for examination in the 
common branches. 

10. "The annual apportionment of $200 shall be voted by this Board at the end 
of the school year upon evidence of satisfactory work." 

11. "The principal shall hold a special certificate granted by the High School 
Board, which in addition to promise of professional success will require one of the 
following in evidence of scholarship: 

a. a diploma of a reputable university or college. 

b. the advanced diploma of a state normal school. 

c. the diploma of a high school known for scholarship and giving a full 
four years' course. 

d. a creditable examination in the common branches and such academic 
branches as may be required by this Board. (Minutes of the State High 
School Board, May 1895). 

Note 33, A. W. Rankin was appointed Graded School Inspector. (Minutes of 
the State High School Board, August 8, 1896.) 

Note 34. The Board passed a resolution to the effect that "Graded schools 
receiving $200 must maintain three departments throughout the year." (Minutes 
of the State High School Board, February 5, 1896.) 

Note 35. It was directed that the principals of graded schools must hold a 
special certificate of the High School Board "issued to applicants of high character 
and successful experience," otherwise the requirements for such principals were the 
same as those designated May 3, 1895, except that at this time the Board reserved 
the right to issue a permit to an applicant eligible except for experience, and no more 
special certificates were to be issued. (Minutes of the State High School Board, 
August 17, 1896.) 

Note 36. See the minutes of August 23, 1902, under High Schools. 

Note 37. "Graded schools after July 31, 1903 must pay principals not less than 
seventy- five dollars per month and grade teachers not less than forty dollars." 
(Minutes of the State High School Board, May 13, 1903.) 

Note 38. See Minutes of November 21, 1904 under High Schools. 

Note 39. See Minutes of December 11, 1905 under High Schools. 

Note 40. On August 20, 1907 a new set of rules governing the requirements for 
graded schools was adopted. 

Ventilation — School buildings must be provided with a system of ventilation 
which shall meet the approval of the State Board of Health. 

Equipment — Each school shall have: 

1. Necessary wall maps, charts, and globes for work in history and 
geography. 

2. At least one set of supplementary readers for each grade. 

3. An International dictionary, or its equivalent, and several copies of 
small dictionaries for use in intermediate and grammar grades. 



158 APPENDIX 

Qualifications of Teachers: 

1. No teacher who has not been graduated from a course affording special 
training in primary work shall be qualified to teach a primary room in 
any graded school. 

2. Teachers in grades from the second to the sixth, inclusive, shall hold at 
least second grade certificates. 

3. Teachers of the seventh and eighth grades shall hold at least a first grade 
state certificate. 

4. The principal of a graded school is required to hold a professional state 
certificate, or a diploma from the advanced course of a Minnesota state 
normal school, or of a reputable college or university, or a diploma of 
an equal rank from a state normal school outside of Minnesota, which 
diploma must first be endorsed by the superintendent of public instruc- 
tion before it is valid. 

5. A limited certificate is not valid in any graded school. 

6. Before entering into contracts or paying salaries, school boards in districts 
maintaining state graded schools shall require the principal and teachers 
to present their certificates for inspection and record to the clerk of the 
school board. 

Teachers 1 Salaries: 

No principal of a graded school shall receive less than seventy-five dollars 
a month for his services as principal and no teacher less than forty dollars 
a month. 
Removal from List: 

Schools failing to comply with the above requirements or neglecting to 
maintain a satisfactory standard of efficiency may be dropped from the 
list. It shall be the duty of the inspector to warn the clerk or other 
officer of the school board of such possible action. 
By order of the State High School Board. 

J. W. Olsen, Secretary 
Department of Public Instruction, 

St. Paul, August 20, 1907. 
Note 41. On April 28, 1909 the following rules were passed by the High School 
Board concerning graded schools receiving $500 special grant for high school work: 

1. A suitable building of not less than six rooms, including a laboratory, shall 
be provided. 

2. Not less than six teachers shall be employed during the entire year for which 
aid is granted. 

3. The principal shall be provided with ample recitation room and office, and 
shall have reasonable time in school hours for general supervision. 

4. The assistant principal shall be in charge of the high school department, 
including grammar school students seated in the room. 

5. The assistant principal must hold a state professional certificate, or a diploma 
from the advanced course of a state normal school or of a reputable college or uni- 
versity. 

6. The salary of the principal shall not be less than ninety dollars a month. 

7. Not less than twenty pupils shall be enrolled in the high school department. 

8. Not less than two years of high school work of such character that it will 
admit students to the third year of any state high school shall be maintained. 

In the report of the state inspector of graded schools for 1910 equipment is de- 
scribed more in detail. 



APPENDIX 159 

1. That for work in geography each school be supplied with a globe, preferably 
one suspended from the ceiling and not less than eighteen inches in diameter, and the 
following maps: the world on Mercator's Projection, the Eastern and Western Hemi- 
spheres, the United States, North America, South America, Europe, Asia, Africa, 
Australia, Minnesota. The three first named ought to be a larger size than the 
remaining seven. 

2. That for work in United States history each school be provided with a large 
outline map of the United States painted on slated cloth. With the aid of colored 
crayons very effective use can be made of this map. 

3. That the supplementary reading be made up wholly of books not arranged in 
series for grades. 

4. That one International dictionary, or its equivalent, be considered sufficient 
for a school of six departments or less. 

5. That pupils be encouraged to purchase their own small dictionaries after they 
have been admitted to the fourth grade, and that, in places where it is considered 
inadvisable to make this requirement, the school board furnish one dictionary for 
every four pupils above the third grade. 

Note 42. On January 22, 1910 the Board passed a ruling that graded schools 
with high school departments should pay their principal not less than $900 annually. 

Note 43. On August 10, 1911 the number of students required in high school 
departments of graded schools was changed from twenty to fifteen. 

III. Rural Schools 

Note 44. The writer has been unable to secure or find reprints of the rules of 
the Department of Public Instruction governing state aid to rural schools previous 
to 1909. 

A pamphlet entitled "Special Aid to Semi-graded and Rural schools — Depart- 
ment of Public Instruction, Minnesota, May 20, 1909," is reproduced here in toto. 

SPECIAL STATE AID 

TO 

SEMI-GRADED AND RURAL SCHOOLS 

Rules Governing Semi-graded and First- and Second-Class Rural Schools 
Applying for State Aid 
In effect August 1, 1909 

Semi-graded Schools 

To be entitled to special state aid of $300 as a semi-graded school, the law and 
regulations of this department require: 

1. School must have maintained, in each of the two departments, for the full 
period of eight months during the year. 

2. The principal must hold a first grade common school certificate, its equiva- 
lent, or one of higher rank, during the entire school year. The other teachers must 
hold at least second grade common school certificates. Limited certificates, and 
county third grade certificates are not sufficient. 

Unless school officers are themselves thoroughly familiar with the rules relating 
to certificates, they should confer with their county superintendent. 

3. The school building and each room must be clean and well kept. Proper 
provision must be made for heating and ventilating in accordance with in- 
structions in closing portion of this pamphlet. 



160 APPENDIX 

4. The district must have a suitable school building, outhouses, library, and 
apparatus necessary for doing efficient work. 

5. The school must be provided with sufficient blackboard, slate preferred, and 
a Webster's International, an Unabridged Standard, or a Century Dictionary. It 
must have at least one complete set of supplementary readers for each grade or class 
in addition to the regular readers used, and a well selected library, to which there 
must yearly be made additions to the amount of at least $15. 

If the district purchases $15 worth of library books under the library law, the 
state will meet half the expense. The books must be ordered early in the school 
year and not later than January 1st, so that the pupils may have the benefit of them 
during most of the school year. 

6. The application of each school must show that it has maintained its standard 
of efficiency in both work and equipment, and that some improvement has been made 
during the year. The school grounds must be kept neat and clean, and present an 
orderly and attractive appearance. Each building should have two outhouses 
properly built and cared for, some distance apart. Where co nditions seem to demand 
it, these may be built together, provided they are separated by a strong wall, imper- 
vious to sound, and the approaches are separated by a tight board fence at least eight 
feet high. Outhouse conditions not complying with these rules must be cured at 

ONCE. 

7. The school must have an aggregate attendance of at least 3,200 days. 
Rural Schools, First and Second Class 

Schools employing first grade teacher and applying for the $150 state aid will be 
known as first class rural schools; those employing a second grade teacher and 
applying for the $100 aid will be known as second class rural schools. 

To be entitled to special state aid as a rural school of the first or second class 
the law and the regulations of this department require that: 

8. School must have been maintained for the full period of eight months during 
the year. 

9. The teacher in a school of the first class must have held a first grade com- 
mon school certificate, its equivalent, or one of higher rank, from the beginning of 
and through the school year. In one of the second class the teacher must in 
like manner, have held a second grade common school certificate. A limited certif- 
icate does not meet the requirements of law. 

Unless school officers are thoroughly familiar with the rules relating to certificates, 
they should confer with their county superintendent. 

10. For both classes of rural schools the district must have a suitable building, 
outhouses, a library, and apparatus necessary for doing efficient work. 

For rural schools of the first and the second class this department makes the 
same requirement it makes of semi-graded, the school building and its equipment, 
heating, ventilating, blackboards, sets of supplementary readers and dictionaries. 
Books to the amount of $10 must be added to the library yearly. The rule regarding 
outhouses will be strictly enforced, and is the same as for semi-graded schools. 

Aid will not be granted to either class of rural schools in which the 
aggregate attendance is less than 1,600 days. 
Teachers 1 Certificates 

11. It will be observed that the certificates required of the teacher in each state- 
aided school is a state certificate of either the first or the second grade. A limited 
certificate or a county third grade certificate will not be sufficient for any teacher in 
any department of a semi-graded, or in a first or second class rural school receiving 
special state aid. 



APPENDIX 161 

Application and Award 

12. Under the provisions of Chapter 142, Laws of 1905, this special aid will be 
paid to the various school districts by the County Treasurer, after October 1st in 
the same manner as other school funds. 

County Superintendents are required by law to make recommendation of dis- 
tricts for this aid. The department must rely very largely upon the intelligence, 
discrimination and judgment of the superintendents. An application should 

NOT BE FORWARDED, OR DISTRICT RECOMMENDED UNLESS THE SUPERINTENDENT IS 
FULLY SATISFIED THAT THE DISTRICT HAS COMPLIED WITH BOTH THE SPIRIT AND THE 
LETTER OF THE LAW, AND WITH THE REQUIREMENTS OF THIS DEPARTMENT. 

The State Superintendent apportions the aid awarded to each school that has 
fully complied with the law; but if the amount available under this act be not suf- 
ficient to apportion the full amount to each school entitled to receive aid, it will be 
divided pro rata. 

The County Superintendent will please observe that we prefer to have all the 
applications from his county at one time, and that they must reach this office before 
August 15th. 

Heating and Ventilating of One- and Two-Room Schoolhouses As Required for Special 
State Aid. 

Supplementary to Bulletin No. 15, this information is intended to make clear 
the attitude of the state department on various questions that have been raised 
by county superintendents and school officers relative to the heating and ventilating 
of school buildings. It aims to state the essential requirements as definitely and as 
briefly as possible. 
Stove Heating with Home-made Ventilating System 

13. The chimney shall be at least 20x20 inches clear on the inside, throughout 
its entire length. This is the standard size for a room in which the average attendance 
does not exceed 30. It should be set into the side of the building so that only one 
side of it is exposed, and should extend at least 25 feet above the level of the floor, 
and at least 4 feet above the highest portion of the roof. 

Inside the chimney shall be a stack, 8 inches in diameter, made of No. 16-gauge 
steel. This stack shall rest on the floor of the chimney for support, shall be held in 
place by side braces, and shall extend two feet above the chimney top. The smoke 
shall enter the stack at the usual smoke-pipe height. Proper provision for removal 
of the soot is to be made in the lower part of the stack. 
Ventilation 

14. The foul air shall be drawn into the chimney through a register at the floor. 
Two registers are preferable. The lower edge of each shall be level with the floor, 
and the top not more than 14 inches above it. The total area of the registers used 
is to be one quarter greater than that of the chimney flue. 

Stove 

15. The stove shall be surrounded by a shield or casing standing at least 6 inches 
away from it and not less than 12 inches above the floor. 

Shield 

16. This is to be built of Russian iron, or polished or plated steel, with a lining 
of asbestos, and an inside fining of corrugated tin, to make it as nearly as possible 
radiation-proof. 

Fresh Air 

17. The fresh-air intake shall have an area as great at least as that of the foul- 
air flue, exclusive of the smoke stack. It must not diminish in size toward the inside. 



162 APPENDIX 

It must so enter the space between shield and stove as to insure that the fresh air 
will be thoroughly warmed before it finds its way into the room. 

It has been proved that a fresh-air register under the stove does not do the work 
intended, and this would not, therefore, be accepted as meeting the requirements. 
Such registers tend to spread cold air over the floor before it is heated. (See Bulletin 
No. 15, pages 9 and 10.) 
Furnace Heating and Ventilating of a One-Room Schoolhouse 

18. The requirements in this case as to chimney, smokestack, and fresh-air 
intake are the same as those laid down regarding a home-made ventilating system. 

Where more rooms than one are to be heated, there must be a corresponding 
increase in the measurements indicated for ventilation purposes. The heat should 
be carried from furnace to schoolroom, either by means of a galvanized duct leading 
up through a partition wall, if possible, or through a separate flue in the chimney. 
The heat should enter the room about 7 feet from the floor — in no case through reg- 
isters in the floor. (See Bulletin No. 15, Pages 10 and 11.) 
Patent System Heating and Ventilating of a One-Room Schoolhouse 

19. The chimney shall be not less than 12x16 inches clear on the inside through- 
out its entire length, and unobstructed in any part of it. 

The foul-air ventilator leading into the chimney shall be at least the equivalent 
of 12 inches in diameter. 

The fresh-air intake shall be as large, at least, as the foul-air ventilator, and 
preferably larger. The stove shield and the fresh-air devices must meet the re- 
quirements set forth for a home-made system in these particulars. 
Explanatory Statement 

20. Heating and ventilating systems that entail the use of a double-flue chim- 
ney, one compartment of which acts as a foul-air ventilator, have proved inade- 
quate and unsatisfactory, and will not be accepted after the present school year, 
except as explained in Rule 21 of this pamphlet. 

A shield that rests on the floor, and a fresh-air register that opens under the 
stove, have also proved inadequate and unsatisfactory, and will in no case hereafter 
be accepted. 

Systems that have foul-air ventilators unheated or smaller than the requirements 
demand will not be accepted. 

21. A building having a heating and ventilating system installed in accordance 
with the provisions of Bulletin No. 3, issued by this department in 1904 (with chimney 
not less than 16x24 inches clear on the inside, or the equivalent of it) will not be 
required to change the plans or system for a continuance of the aid so long as the 
system and the chimney are in good usable and working order. 

Previous to the issuance of Bulletin No. 15 in May 1908, the department ac- 
cepted, as meeting the state aid requirements, a patented system with a fresh-air 
intake and foul-air ventilator the equivalent of 10 inches in diameter; and districts 
which had such a system installed before that time will not be debarred by it from 
still receiving aid while the chimney and the system continue in good working order. 

It is not the purpose to require frequent or unnecessary changes in heating and 
ventilating systems. The department will recognize any practical and workable 
system heretofore in use, which complied with the requirements as they existed at 
the time it was installed. 
General Suggestions 

22. Means of Heating. Stoves of the round-oak type with firepots 20 to 24 
inches in diameter — according to the size of the room — are well suited for ventila- 
tion purposes. Box stoves are unsightly and unsatisfactory; their use should be 



APPENDIX 163 

abandoned as soon as possible. Base-burners are not adapted for ventilation systems, 
and should not be used. 

Placing of Chimney. Whenever practicable, the chimney should be in the same 
end of the building as the entrance. This makes it possible to have the heater near 
the door, convenient for the bringing in of fuel and the carrying out of ashes, and also 
serves as a means of checking cold drafts occasioned by the opening of the door. 

Cost. School boards should bear in mind that the installation of a proper 
system of heating and ventilation is a permanent improvement, as well as a funda- 
mental requisite for a successful school. It is usually economy in the end to pay a 
little more for something that is right than to try to get along with makeshifts. 
Before putting in a new and untried system of heating and ventilating, or making 
any changes in a system already installed, school boards are urgently advised to confer 
with their county superintendent. 

C. G. Schulz, 

Superintendent of Public Instruction 

Note 45. Copies of further regulations have not been found up to a circular 
letter issued by the State Superintendent, dated November 8, 1912. The stipula- 
tions governing state aid in this circular are: 

"Your attention is directed to one additional requirement for the receiving of 
state aid in semi-graded and in rural schools of Classes A, B, and C. 

'(h) Primary Material. Ample material for seat work in primary grades 
must be provided — at least $10 for each school.' 

It is desirable that this rule should effect the provision of this material in the 
schools during the present school year. Beginning with the school year 1913-14, 
the rule will be uniformly enforced." 

IV. Industrial Departments 

Note 46. A. Each school must be listed by the State High School Board before 
it begins work. 

B. The equipment shall include at least: 

1. One shop. 

2. One room for domestic science exclusively. 

3. One class room. 

4. One laboratory. 

5. Farm buildings sufficient to shelter seeds, tools, and children in case the 
plot is removed from the school building. 

C. Instructors required: 

1. The corps shall include not less than three special instructors, one having 
had training in agriculture, one in shop work, and one in domestic science. 

2. In case of a rural consolidated school one of these instructors may be the 
principal. 

3. In addition to a legal certificate, each special instructor shall hold a 
diploma from a reputable school of agriculture, a technical school, or a 
permit from the secretary of the High School Board. 

D. In reckoning aid, credit shall be given for: 

1. Salaries of special instructors — in case part time is devoted to the work 
corresponding credit shall be given. 

2. Equipment, including tools and apparatus. 

3. Supplies, including seeds. 

4. Labor and team work. 



164 APPENDIX 

5. Reference books. 

6. Extension work in rural schools. 

E. No part of the fund may be expended in purchasing ground or in erecting 
buildings. (Minutes of the State High School Board, April 28, 1909). 
On May 4, 1909 the following rules were added: 

1. That the farm building shall contain a suitable office room for the person 
in charge of the agricultural work and a suitable recitation room. 

2. That the inspectors and the State Superintendent be directed to prepare 
suitable courses of study for the work in schools designated under the 
Putnam act. 

Note 47. The regulations of the State High School Board for schools maintain- 
ing special departments authorized by the law of 1911 are set forth in Circular No. 3, 
1911, of the Department of Public Education. 

REGULATIONS 
OF THE 
STATE HIGH SCHOOL BOARD 

For Schools Maintaining a Department of Agriculture and a Department of Home 

Economics or Manual Training 
In Accordance with Chapter 91, Laws of 1911 

Circular No. 3, 1911 

(Chapter 91, Laws of 1911)' 

Section 1. Any High School or Graded School which shall maintain such a 
course as the High School Board of this State shall prescribe in Agriculture and 
either in Home Economics or in Manual Training, shall receive annually in addition 
to other aid the sum of One Thousand ($1,000) Dollars for maintaining such in- 
dustrial courses, to be paid from the appropriations made for State aid to High and 
Graded Schools. 

Sec. 2. This aid shall not be paid to any school receiving aid under any other 
act, for the maintenance of industrial courses. 

The following rules apply to high and graded schools alike: 

1. Applications for the aid ($1,000) are made before the first day of August to 
the Superintendent of Public Instruction on the blank form prepared for the purpose. 

2. The consent of the High School Board shall be obtained before the depart- 
ments are established and the work is undertaken. 

3. The annual award — which is made at the regular August meeting of the 
board — will be based on satisfactory work in agriculture and home economics, or in 
agriculture and manual training, during the preceding school year. 

4. The industrial courses authorized by this law and covered by these rules 
shall be maintained throughout the school year, and shall be free of tuition to all 
applicants, except that the tuition of non-resident pupils is chargeable against the 
school district to which such pupils belong. 

5. In addition to the longer course, each school shall offer a free winter short 
course of not less than three months. 

6. Instructors. Each instructor in agriculture, sewing, cooking, or manual 
training shall have had adequate training in a technical school. The instructor in 
agriculture shall be a graduate of an agricultural college, or shall have had technical 
training equivalent to that of a graduate of such institution. Each of these in- 
structors shall, before a contract is made, secure from the Superintendent of Public 
Instruction a special industrial certificate, issued only on the recommendation of 



APPENDIX 165 

persons in a position to know the qualifications of the candidate, and upon the en- 
dorsement of the state inspector. 

The superintendent or the principal of a school having not to exceed five grade 
teachers may teach one industrial subject. In such case he must have the quali- 
fications and hold the certificate required for an industrial teacher. 

The instructor in agriculture may direct manual training. The work in home 
economics may be divided between two instructors, one for sewing and the other for 
cooking. A regular high school or grade teacher may devote part time to sewing or 
to cooking, provided she possess the qualifications and hold the certificate necessary 
for an industrial teacher. 

7. Courses. Home economics shall be held to include both cooking and sewing. 
A room is here defined as one having not less than 700 square feet of floor space, and 
properly lighted and ventilated. 

Sewing. An adequate outfit shall be provided, including cutting tables, one or 
more sewing machines, material suitable for patterns, the materials required for 
exercises, and such implements as are required in the usual sewing room. 

Cooking. A special room shall be fitted up with tables, cooking utensils, table 
service, cupboards, and conveniences for storing kitchen supplies. 

Manual training. A special room shall be provided with benches and the 
necessary tools. Material for exercises shall be supplied free of charge. Lumber 
for articles taken home may be charged for at cost. 

Agriculture. The instructor shall have a room exclusively for his work. He 
shall be provided with laboratory facilities, and shall have not less than a continuous 
half day for agriculture work. He shall make a close study of local conditions, and 
attend markets, horticultural meetings, meetings of creamery and stock-breeding 
and other associations, and such other gatherings as afford opportunity to make the 
acquaintance of farmers. 

The work in agriculture shall include: 

a. A course based on textbooks, bulletins, and lectures. 

b. A laboratory course, including physical examination of soils, prepara- 
tion of weed-seed cases, testing of seeds, testing for butter-fat, grain 
judging, stock judging, etc. 

c. Special work along some line of local interest, such as dairying, corn 
breeding, small grain, potatoes, fruit, meat products, poultry, etc. The 
school shall not only maintain a standard of general efficiency, but shall 
develop strength in a chosen specialty. 

d. The organization of institute work in cooperation with the extension 
division of the college of agriculture of the state university. 

e. A winter short course. 

If the work be done satisfactorily, two periods given daily to an industrial 
subject or subjects shall count as a credit. 

May 1, 1911. 

C. G. Schulz, 

State Superintendent and Secretary of 
the High School Board. 

Circular No. 7, 1912 
Superintendents, Principals, and School Boards: 

Your attention is directed to the questions referred to in this circular that relate 
to Industrial departments in high schools and graded schools. 



166 APPENDIX 

At its annual meeting on August 1st, the High School Board adopted these 
regulations : 

Regulations of the High School Board Relating to 
Industrial Training Departments 

School Plot 

The board of each high and graded school which receives the special award for 
agricultural work, and which maintains a school farm, must keep its plot or field free 
of weeds, and in a state proper for cultivation and for demonstration purposes. 
Compliance with this rule will be taken into consideration by the High School Board 
in making the award. 
Employment of Agricultural Director 

High and Graded schools which receive the special award for agricultural work 
and instruction are required, beginning with the present school year, to employ the 
agricultural director for the full calendar year of twelve months, that he may render 
efficient and useful service in this special line to his school and community. The 
year of employment will begin August 1st. 
Tuition 

High and Graded schools receiving the special award for industrial work, which 
charge tuition for the enrollment of non-resident pupils in the industrial department, 
are required to make monthly statements to the home district, of the number of 
pupils enrolled, the number of days' attendance, and the amount of tuition charged 
against the district for the month. 

It is a matter of importance for the schools which maintain an industrial 
department, and which collect tuition from the rural schools tributary to them, on 
account of enrollment of non-resident students, that no misunderstanding or ill-will ' 
should grow from these relations. The High School Board asks that the school 
board and superintendent in each central school handle this situation in a systematic 
and businesslike way. To this end, it requests them to give notice to the clerks of 
the rural schools upon the enrollment of each new student from the respective districts 
and to send monthly statements of the tuition charged. To facilitate this work, 
sample blanks have been prepared and are here sent you, so that each school may 
provide itself with a supply of them. 
Department of Industrial Education 

To provide for the training of teachers of agriculture, the High School Board, 
in conjunction with the Board of Regents of the University, has employed Mr. A. V. 
Storm, formerly of the State College at Ames, Iowa, to take charge of a department 
in the College of Agriculture to be known as the Department of Agricultural Edu- 
cation. The work of Mr. Storm begins with the opening of the present school year. 
He will spend at least half of his time during the year visiting schools in which agri- 
cultural departments are maintained that receive state aid. His visits to the schools 
will be to study agricultural education in Minnesota, with a view to training teach- 
ers for this service. 
High School Board Examinations — Dates for IQ13 

January 20 and 21 — in certain half-year High School subjects. 

January 24 and 25 — in Grammar grade subjects. 

May 26 to 29 inclusive — in both Grammar grade and High School subjects. 

August 20, 1912. C. G. Schulz, 

Superintendent. 



APPENDIX B 

Herewith are presented three of the five tables as published in the final brief 
report of the Commission. 1 The fifth table has already been included in the chap- 
ter on Rural Schools. The following matter is reproduced without change from 
pages 28-31, inclusive, of the report. 
Enrollment in: 

High school districts 196,752 — 43.8 per cent 

Graded school districts 34,223 — 7.8 per cent 

Rural school districts 218,007 — 48.4 per cent 

Attendance: 

Total days- attendance in high school districts 30,571,941 — 53 per cent 

Total days attendance in graded school districts 5,131,076 — 8.9 per cent 

Total days attendance in rural school districts 21,865,741 — 38.1 per cent 



TABLE I 
Relation of Valuation and Taxation to Cost of Instruction 



County 


Assessed Valua- 
tion per Pupil 
Enrolled 


Average Special Tax 
Rate in Mills 


Average Expense in 

Cents per Day of 

Attendance 




Rural 


High 

and 

Graded 


Rural 


High 


Graded 


Rural 


High 


Graded 




$1,067 
1,577 
3,099 
2,217 
4,369 
1,663 
1,133 
2,426 
2,427 
3,489 
2,666 
2,728 
3,294 
3,317 


$ 1,677 

816 

1,134 

1,127 

10,585 

1,249 

859 

1,229 

1,483 

1,112 

1,073 

996 

1,163 

1,212 


16. 

16.03 
6.04 
5.34 

16.5 
6. 
7.5 
5.27 
4.13 
7. 

5.44 
5.6 
5.62 
3.53 


12.2 

21. 

25. 

28. 

11.5 

19.1 

27.7 

19.9 

18.8 

33.8 

21.9 

26.8 

23. 

19. 


39.2 

12.2 
16.7 
28.1 
12.2 
25.6 
13.6 

25.9 
15.3 
19.7 
23.5 
17. 


23.5 

25.25 

30.42 

20.5 

40. 

17.7 

15.2 

19.08 

21.33 

31.6 

22.5 

24.08 

26.3 

20.33 


22.8 

18.7 

26.5 

26.9 

81.8 

27.8 

21.6 

25.9 

29.8 

29.3 

27.76 

25.3 

27.1 

21.6 


28.1 


2. Hubbard 






26.1 




24.4 




52.1 




17.7 




30. 




24.8 


9. Scott 


37.6 


10. Wilkin 




11. Dodge 


17.8 


12. Fillmore 


20.9 




28.2 




18.6 







1 See Chapter 1, p. 1. 



168 



APPENDIX 



TABLE II 

Relation of State Support to Total Cost of Maintenance 
(State support is the sum of annual aid and apportionment) 



County 


State Support Each 
Day per Pupil 


Annual Cost per 

Pupil Entitled to 

State Apportionment 


Per Cent of State 

Support as Related 

to Total Cost 




Rural 


High 


Graded 


Rural 


High 


Graded 


Rural 


High 


Graded 




Cents 


Cents 


Cents 








Per cent 


Per cent 


Per cent 


1. Carlton 

9. Scott 

10. Wilkin 

11. Dodge 

13. Pipestone. . . . 

14. Watonwan . . . 


7.8 

6.6 

8.1 

7.8 

7.5 

8.2 

7.5 

8. 

8.1 

8.1 

8.3 

8.2 

8.3 

8.1 


5.2 

8.1 

8.9 

8.3 

4.6 

7.1 

6.9 

10.4 

12.2 

8.5 

12.4 

8.4 

7.2 

7.2 


10.8 

15.2 
8.6 

6.2 
7. 
7.5 
7.6 

11. 
6.3 
7.1 
8.3 
6.1 


$28.40 
30.90 
36.15 
22.50 
51.60 
19.00 
18.19 
21.30 
19.70 
36.30 
27.50 
27.90 
32.60 
21.30 


$37.60 
27.70 
37.80 
40.60 

139.00 
38.30 
33.70 
40.60 
50.60 
44.40 
46.70 
43.00 
43.00 
39.00 


$42.40 

36.50 
34.20 
86.40 
28.00 
43.40 
36.60 

57.10 
29.00 
34.90 
42.00 
30.60 


35.72 
32.99 
29.41 
38.64 
16.49 
48.84 
44.99 
40.99 
42.28 
■ 27.24 
39.29 
35.63 
34.00 
39.24 


23.3 
42.1 
33.8 
32. 

6.3 
33.4 
32.2 
39.7 
39.8 
28.6 
45. 
33.5 
26.4 
30.25 


35.7 

54.3 
36.6 
10.7 
39.9 
25.2 
30.7 

30.5 
30.5 
34.1 
33.8 
33. 



Note: One fifth of the rural schools in these counties actually received more from the state than 
they raised by local taxation. 



TABLE III 
Attendance and Salaries 



County 


Average Days of Attendance 


Average Monthly 
Salary of Teachers 




Rural 


High 


Graded 


Rural 




110.5 
90.3 
90.66 
88.6 
117.6 
105.75 
100.9 
95.25 
89.8 
92.13 
101.2 
94.94 
101.5 
89.8 


160 

139 

140 

146.5 

153 

130 

143 

139 

140 

140 

143 

148 

146 

143 


137 


$50.15 




45.66 




127 
130 
144 
141 
131 
144 


51.14 




49.70 




64.50 




51.00 




54.90 




52.30 


9. Scott 


49.65 


10. Wilkin 


129 
148 
140 
121 
145 


52.92 


11. Dodge 


50.76 




45.84 




52.80 




48.73 







Teacher's Salaries for Entire State 




Minimum 



High school districts. . 
Graded school districts 
Rural school districts . . 



$540 
389 
210 



APPENDIX C 

LAWS PASSED BY THE LEGISLATURE OF 1915 

Laws of 1915 Minnesota 

Chapter 238 

Consolidation of School Districts 

Sec. 1. Two or more school districts of any kind may consolidate either by 
the formation of a new district or by the annexation of one or more districts or un- 
organized territory to an existing district in which is maintained a state graded, 
semi-graded, or high school as hereinafter provided. 

A district so formed by consolidation or annexation shall be known as a con- 
solidated school district. Before any steps are taken to organize a consolidated 
school district, the superintendent of the county in which the major portion of terri- 
tory is situated, from which it is proposed to form a consolidated school district, 
shall cause a plat to be made showing the size and boundaries of the new district, 
the location of school houses in the several districts, the location of other adjoining 
school districts and of school houses therein, and the assessed valuation of property 
in the proposed district, together with such information as may be of essential value, 
and submit the same to the superintendent of education who shall approve, modify, 
or reject the plan so proposed, and certify his conclusions to the county superin- 
tendent of schools. 

Sec. 2. To receive state aid as a consolidated school of Class A or Class B, 
as defined in this act, the consolidated districts must contain not less than twelve 
sections; provided, however, that when any consolidated school district shall have 
attained a valuation of $200,000 and not exceeding $1,000,000, and contains within 
its borders an incorporated village which consolidated district contains but ten sec- 
tions, such consolidated district shall have all the rights and privileges of a consoli- 
dated school district. Any existing school district having the area and meeting the 
requirements specified in this act, shall have the rights and privileges of a consoli- 
dated school district. 

Sec. 3. After approval by the superintendent of education of the plan for the 
formation of a consolidated school district, and upon presentation to the county 
superintendent of a petition signed and acknowledged by at least twenty-five (25) 
per cent of the resident freeholders of each school district or area affected, qualified 
to vote at school meetings, asking for the formation of a consolidated school dis- 
trict in accordance with the plans approved by the superintendent of education, 
the county superintendent shall, within ten days, cause ten days' posted notice to 
be given in each district affected, and one week's published notice, if there be a news- 
paper published in such district, of an election or special meeting to be held within 
the proposed district, at a time and place specified in such notice, to vote upon the 
question of consolidation. 

Sec. 4. At such meeting the electors shall elect from their number a chairman 
and clerk who shall be the officers of the meeting. The chairman shall appoint two 
tellers, and the meeting and election shall be conducted as are annual meetings in 
common and independent districts. The vote at such election or meeting shall be 
by ballot, which shall read: "For Consolidation," or "Against Consolidation." The 
officers at such meeting or election shall, within ten days thereafter certify the result 
of the vote to the superintendent of the county in which such district mainly lies. 
If a majority of the votes cast be for consolidation, the county superintendent within 



170 APPENDIX 

• 

ten days thereafter shall make proper orders to give effect to such vote, and shall 
thereafter transmit a copy thereof to the auditor of each county in which any part 
of any district affected lies, and to the clerk of each district affected, and also to the 
superintendent of education. If the order be for the formation of a new district, 
it shall specify the number of such district. The county superintendent shall also 
cause ten days' posted notice, and one week's published notice, if there be a news- 
paper published in such district, to be given of a meeting to elect officers of the newly 
formed consolidated school district; provided, that the board of a consolidated school 
district shall form, and after the formation of the consolidated district, have all the 
powers, privileges, and duties now conferred by law upon boards of independent 
districts. After the formation of any consolidated school district, appeal may be 
taken as now provided by law in connection with the formation of other school dis- 
tricts. Nothing in this act shall be construed to transfer the liability of existing 
indebtedness from the district or territory against which it was originally incurred. 

Sec. 5. In like manner, one or more school districts may be consolidated with 
an existing district in which is maintained a state high or graded, or semi-graded 
school in a district containing an incorporated village, in which case the school board 
of the district maintaining a state high or graded, or semi-graded school in a district 
containing an incorporated village, shall continue to be the board governing the 
consolidated school district, until the next annual school election, when successors 
to the members whose terms then expire shall be elected by the legally qualified voters 
of the consolidated school district; provided, however, that in the case of consoli- 
dation with a school district in which there is maintained a state high or graded, or 
a semi-graded school in a district containing an incorporated village, consolidation 
shall be effected by vote of the rural school districts only in the manner provided 
under this act, and by the approval of such consolidation of the rural district or 
districts with the one in which there is maintained a state high or graded or semi- 
graded school in a district containing an incorporated village, by the school board 
thereof. 

Sec. 6. In like manner any portion of an unorganized school district or district 
governed by a county board of education may be consolidated with an existing dis- 
trict in which is maintained a state high, graded, or semi-graded school, by a vote 
of the county board of education in the county in which is located such unorganized 
territory and by the approval of such consolidation of the unorganized territory and 
by the school board of the district in which is maintained a state graded, semi- 
graded, or high school. 

Sec. 7. The officers of the several districts forming a consolidated school dis- 
trict shall within ten days from receipt of copy of the order of the county superin- 
tendent certifying the formation of the new district, or immediately after election 
and qualification of members of the school board in the consolidated school district, 
turn over to the proper officers of the newly elected school board, or to the proper 
officers of the school board in the district maintaining the state high or graded or 
semi-graded school, all records, funds, credits, buildings, property, and other effects 
of their several districts. 

Sec. 8. For the purpose of promoting a better condition in rural schools, and 
to encourage industrial training, including the elements of agriculture, manual train- 
ing, and home economics, the board in a consolidated school district is authorized 
to establish schools of two or more departments, provide for the transportation of 
pupils, or expend a reasonable amount for room and board of pupils whose atten- 
dance at school can more economically and conveniently be provided for by such 
means; locate and acquire sites of not less than two acres, and erect necessary and 



APPENDIX 171 

suitable buildings thereon, including a suitable dwelling for teachers, when money 
therefor has been voted by the district. They shall submit to the superintendent 
of education a plat of the school grounds, indicating the site of the proposed build- 
ings, plans and specifications for the school building and its equipment and the 
equipment of the premises. 

Sec. 9. (1) For receiving state aid, schools in consolidated districts shall be 
classified as A and B. Schools of Class A shall be in session at least eight months 
in the year and be well organized. They shall have suitable school houses with the 
necessary rooms and equipment. Those belonging to Class A shall have at least 
four departments and those belonging to Class B, at least two departments. The 
board in a consolidated school district maintaining a school of either class shall 
arrange for the attendance of all pupils living two miles or more from the school, 
through suitable provision for transportation or for the boarding and rooming of such 
pupils as may be more economically and conveniently provided for by such means. 

(2) Besides maintaining schools in consolidated districts conforming to the 
requirements of those coming under classes A and B, the school board may maintain 
other schools of not more than two departments, and receive state aid for these as 
provided for semi-graded and rural schools. 

Sec. 10. (1) The principal of a consolidated school shall be qualified to teach 
the elements of agriculture, as determined by such tests as are required by the super- 
intendent of education. A school of this class shall have suitable rooms and equip- 
ment for industrial and other work, a library, and necessary apparatus and equip- 
ment for efficient work, and a course of study embracing such branches as may be 
prescribed by the superintendent of education. 

(2) The principal and other teachers, including special teachers, shall have 
such qualifications as may be fixed by the superintendent of education. 

Sec. 11. Schools under Class A in consolidated districts shall receive annually 
aid of five hundred dollars ($500); those under Class B shall receive annually aid 
of two hundred and fifty dollars ($250). 

In addition to such annual aid, schools shall receive annually the amount rea- 
sonably expended for the transportation of pupils, not to exceed two thousand dol- 
lars ($2,000). 

In addition to other annual aid, consolidated schools of either of the above 
classes shall receive an amount to aid in the construction of buildings, equal to twenty- 
five (25) per cent of the cost of such buildings, but no school shall receive more than 
a total of two thousand dollars ($2,000) for aid in construction of buildings. The 
annual aid and the aid for buildings shall be paid in the same manner as now pro- 
vided by law for the payment of other state aid to public schools. 

Whenever any school in a consolidated district attains the rank of a state high 
or graded school, it shall possess the rights and privileges of such school. 

Sec. 12. Sections 1289, 1290, 1291, 1292 and 1293, Revised Laws of 1905, and 
chapter 326, Session Laws of 1905, and chapter 304, Session Laws of 1907, chap- 
ter 207, Session Laws of 1911, and chapters 279 and 428, Session Laws of 1913, and 
other acts and parts of acts inconsistent herewith, are hereby repealed. 

Chapter 239 

Relating to Industrial departments, Association with Central School 

and State Aid for These 
Sec. 1. Definitions, — "Industrial Subjects" as that term is used in this act, 
shall include courses in agriculture, home training (including cooking and sewing), 
manual training, and commercial training. 



172 APPENDIX 

The term "central school" as used in this act, shall mean the school or schools 
of a district in which industrial courses are given. 

Sec. 2. Schools Designated to Maintain Industrial Courses, — Any high school, 
graded school, or consolidated rural school which has satisfactorily met the require- 
ments in regard to rooms and equipment, and has shown itself fitted by location and 
otherwise to give training in any one or more of the industrial subjects, may be 
designated by the state board of education to maintain such industrial courses, and 
to receive state aid therefor. 

Any school now operating and receiving state aid under the provisions of chap- 
ter 247, General Laws of 1909, and the acts amendatory thereof, shall continue to 
be aided under the provisions of this act for its industrial departments, provided 
such school maintains the standards made for receiving aid on such account. 

Any such school which has secured a tract of land for experimental and demon- 
stration purposes may continue to own and operate such tract in connection with 
the industrial school courses. 

Sec. 3. Qualifications of Instructors in Industrial Departments, — Each such 
school shall employ trained instructors for the several courses having such quali- 
fications as may be fixed by the state board of education. 

Sec. 4. School Garden and Experimental Tract, — A school maintaining a 
course in agriculture may procure a tract of land suitable for school garden and for 
purposes of demonstration located within the school district, or if outside of the 
school district not to exceed three miles from the central building. 

The board may require a school having a course in agriculture to procure a 
tract of land for the purposes stated. 

Sec. 5. Instruction Shall Be Practical; Short Course, — The instruction in 
agriculture, »as well as in the other industrial courses, shall be of a practical character 
and shall include such questions and the study of such subjects or courses as have 
a direct relation to the business of farming, home making, and the other subjects 
included under the head of industrial studies. 

When necessary to accommodate a reasonable number of boys and girls to 
attend only in the winter months, special classes shall be formed for them. 

Sec. 6. Association, — For the purpose of providing training and instruction in 
agriculture and such other industrial subjects as can properly be taught to pupils 
in rural schools, and to extend the influence and supervision of the central school 
to rural schools, one or more school districts may become associated with a high, 
graded, or consolidated rural school in which industrial courses are maintained. 

Such association may be effected with a central school even though such central 
school has not been designated to receive annual state aid on account of maintain- 
ing industrial courses. 

Sec. 7. Procedure for Association, — Association shall be effected upon action 
taken at any annual or special meeting of the rural school district seeking such 
association, under such rules as the state board of education may establish. 

The association shall be considered as effected only after the approval by the 
school board of the central district and by the state board of education. 

Sec. 8. Duties of Superintendent or Principal of Associated Rural Schools, — 
The superintendent or principal of the central school shall exercise the same author- 
ity and supervision over the associated rural schools as over the central school. He 
shall prepare for the associated rural schools suitable courses of study in agriculture 
and in such other industrial courses as may properly be taught in the associated 
rural schools. 



APPENDIX 173 

Sec. 9. Any pupil from an associated rural school shall be admitted to any 
grade or department in the central school upon the same conditions as pupils resi- 
dent in the district of the central school. 

Sec. 10. Termination of Association, — The relationship between any asso- 
ciated school district and the central school shall be permanent except as it may be 
terminated by a majority vote of the voters of the associated district. 

Sec. 11. Associated School Board, — The members of the various school boards 
of the associated rural districts and the members of the school board of the central 
district shall constitute a board to be known as "The Associated School Board of 
of ." 

Sec. 12. Duties of Associated School Board, — The duties of the associated 
board shall be: 

(a) To hold such meetings at the central school at such times as the associated 
board may determine. 

(b) To act on questions affecting the relation of the associated rural schools 
and the central school. 

(c) To submit to a vote of the various associated rural districts the question 
of levying a tax in the associated rural districts to assist in the erection of an agri- 
cultural and industrial building in connection with the central school, and the levy 
and collection of a tax for this purpose. 

The associated school board may also submit to the several associated rural 
districts the question of levying a tax in such district to assist the central districts 
in the maintenance of the industrial courses, such tax in no case to exceed two (2) 
mills in any year. 

Before any tax, either for building or for maintenance, shall be levied, it must 
be voted for and approved by each of the rural districts so associating with a central 
school. 

(d) To procure for demonstration and experimental work in agriculture, when 
necessary, a tract of land in one or more of the associated rural districts. 

Sec. 13. Officers of Associated School Board, — The officers of the district of 
the central school shall be the officers of the associated school board. 

Sec. 14. State Aid to Industrial Departments, — High, graded, and consoli- 
dated rural schools maintaining courses in agriculture, home training (including 
cooking and sewing), manual training, and commercial training, shall receive one 
thousand dollars ($1,000) for the agricultural course, and six hundred dollars ($600) 
for each course in home training (including cooking and sewing), manual training, 
and commercial training. 

Aid to each of these departments shall not exceed the sums paid as salaries in 
the respective departments. 

Sec. 15. State Aid to Schools on Account of Association, — Rural school dis- 
tricts associated with a central school shall receive annually fifty dollars ($50) on 
account of such association. 

The central school with which a rural school or rural school district is associated 
for the purposes herein stated shall maintain departments in agriculture and such 
other industrial subjects as the state board of education may require, and shall 
receive annually two hundred dollars ($200) for each such associated rural school 
or school district. 

Sec. 16. In case the state board of education referred to in this act shall not be 
provided by law, the authority herein granted to such board shall rest in the state 
high school board and the state superintendent of education in accordance with the 
provisions of existing law. 



174 APPENDIX 

Sec. 17. Repealing Clause, — Chapter 247, General Laws, 1909; chapter 82, 
General Laws, 1911; chapter 309, General Laws of 1913; and chapter 91, General 
Laws of 1911, as amended by chapter 96, General Laws, 1913, are hereby repealed. 

Chapter 296 

State Aid to Public Schools 

Sec. 1. For the purpose of aid to public schools there shall be established the 
following state funds: 

(a) The endowment fund, which shall consist of the income on the permanent 
school fund. 

(b) The annual fund, which shall consist of the sums appropriated by the 
legislature for special aid to public schools or departments in the schools. 

(c) The current school fund, which shall consist of the amount derived from 
the state one-mill tax. 

Sec. 2. The state board of education shall distribute the annual funds and 
any other sums appropriated by the state to schools and libraries, in such manner 
and upon such conditions as will enable them to perform efficiently the services re- 
quired by law, and to further the educational interests of the state. To this end 
the state board shall have power to fix the requirements for receiving and sharing 
in the state aid. « 

Sec. 3. The endowment fund shall be distributed semi-annually to school 
districts whose schools have been in session at least six months, in proportion to 
the number of scholars of school age who have attended school at least forty (40) 
days during the preceding year. 

The annual funds shall be distributed as follows: 

Sec. 4. Rural schools in session at least eight months, shall receive one hun- 
dred and fifty dollars ($150) for each teacher holding a first-class certificate. Rural 
schools in session at least seven months annually shall receive one hundred dollars 
($100) for each teacher holding a second-class certificate. 

Sec. 5. A graded school in session at least nine months in the year shall receive 
six hundred dollars ($600) and an additional one hundred dollars ($100) for each 
grade teacher employed in excess of four, counting the principal as a teacher. 

A graded school may receive an additional two hundred and fifty dollars ($250) 
for each high school teacher. 

The total aid to a graded school on this basis shall not exceed thirteen hun- 
dred dollars ($1300). 

No graded school in the same district with an aided high school shall receive 
annual aid. This provision shall not apply to districts of ten or more townships. 

Sec. 6. A high school in session at least nine months in the year shall receive 
annually eighteen hundred dollars ($1800). 

Sec. 7. High, graded, or consolidated schools, maintaining courses in agricul- 
ture, home training (including cooking and sewing), manual training, or commer- 
cial training, shall receive one thousand dollars ($1,000) for the agricultural course, 
and six hundred dollars ($600) for each course in home training (including cook- 
ing and sewing), manual training, and commercial training. 

Aid to each of these departments shall not exceed the sums paid as salaries in 
the respective departments. 

Sec. 8. High schools maintaining a department for training rural teachers shall 
receive annually twelve hundred dollars ($1200). A school employing more than one 
teacher in such department may receive not to exceed two thousand dollars ($2,000). 



APPENDIX 175 

A school employing more than two teachers in such department and enrolling not 
less than fifty students may receive not to exceed twenty-eight hundred dollars 
($2800). 

Sec. 9. Consolidated schools of Class A shall receive annually five hundred 
dollars ($500). 

Consolidated schools of Class B shall receive annually two hundred and fifty 
dollars ($250). 

In addition to this annual aid consolidated schools shall be reimbursed for the 
amount reasonably expended for transportation of pupils, not to exceed two thou- 
sand dollars ($2,000). 

Districts providing school buildings for consolidated school purposes may be 
reimbursed up to one fourth of the cost of such buildings, but not to exceed two 
thousand dollars ($2,000). 

Sec. 10. Each school shall receive in addition to other aid, library aid amount- 
ing to ten dollars ($10) for each teacher employed, with a maximum of twenty- 
five dollars ($25) to a building, provided the district appropriates a like amount for 
the same purpose. 

Sec. 11. Districts whose local tax levy for maintenance of schools exceed 
twenty mills (20) in any year may receive in addition to other aid, one third of the 
amount raised in excess of that received from the twenty (20) mill levy with a max- 
imum of twenty-five hundred dollars ($2500) to each high school, eighteen hundred 
dollars ($1800) to each graded school, and to rural schools, two hundred dollars 
($200), for each teacher. 

Sec. 12. Rural school districts associated with a central school shall receive 
annually fifty dollars ($50) on account of such association. 

The central school with which a rural school or rural school district is associated 
for the purposes herein stated shall maintain departments in agriculture and such 
other industrial subjects as the state board of education may require, and shall 
receive annually two hundred dollars ($200) for each such associated rural school 
or school district. 

Sec. 13. The current school fund shall be distributed to school districts as 
follows: 

The state auditor shall set aside from the current school fund an amount not 
to exceed one hundred and fifty thousand dollars ($150,000) each year for the fol- 
lowing purposes: 

(a) To assist any school district which does not maintain a state high or state 
graded school in maintaining its public schools, when a levy of fifteen (15) mills in 
such district does not raise five hundred dollars ($500) for each school in session 
seven (7) months during the year, the state board of education may expend not 
to exceed two hundred dollars ($200) for each such school. 

(b) To make up for any deficit which may arise in payment of the annual funds 
to schools, or to special departments in certain schools. 

(c) To pay the tuition of non-resident pupils enrolled in the industrial depart- 
ments of state high, graded, or consolidated rural schools which have been desig- 
nated by the state board to maintain courses and instruction in agriculture, home 
training (including cooking and sewing), manual training, and commercial training, 
and whose residence district does not provide courses and instruction of like kind. 

Sec. 14. A high school student whose residence district provides high school 
courses of instruction shall not be entitled to free admission to the high school of 
any other district except by permission of the school board of such other district, 
or in accordance with the rules of the state board of education. 



176 APPENDIX 

The rate of tuition shall be fixed by the state board of education, but not to 
exceed two dollars and fifty cents ($2.50) per month for each non-resident pupil, 
nor more, than nine (9) months in any school year. 

No non-resident pupil shall be entitled to have any tuition made a charge 
against the state whose residence district furnishes courses and instruction in the 
industrial studies. Nor shall pupils from any associated district be counted for 
payment of tuition in the central school of the same district. 

No tuition shall be charged any pupil resident of this state, who is enrolled 
in the high school department of any state high or graded school, except in the in- 
dustrial departments above specified. 

The state board of education shall make proper rules relating to enrollment, 
attendance, rates of tuition, payment of the endowment and current funds, on ac- 
count of such non-resident pupil's. 

Sec. 15. The balance of the current school fund shall be distributed on the 
same basis and at the same time as the endowment fund. 

Sec. 16. In case the state board of education referred to in this act shall not 
be provided by law, the authority herein granted to such board shall rest in the state 
high school board and the state superintendent of education in accordance with the 
provisions of existing law. 

Sec. 17. Repealing Clause, — All acts and parts of acts inconsistent with the 
provisions of this act are hereby repealed. 



APPENDIX D 

EXTRACTS FROM THE EIGHTEENTH BIENNIAL REPORT OF THE 
STATE SUPERINTENDENT OF PUBLIC INSTRUCTION 

TABLE I 1 
Growth of Permanent School Fund since 1862 

1862 $ 242,531.00 

1865 841,007.00 

1870 2,426,240.00 

1875 3,191,042.00 

1880 4,449,725.00 

1885 7,303,166.00 

1890 9,241,119.00 

1895 11,287,423.00 

1900 12,546,529.00 

1904 15,987.477.00 

1906 17,824,135.00 

1908 19,709,383.00 

1910 21,002,571.00 

1912 22,614,294.00 

1914 24,668,248.59 

TABLE II 2 

Permanent School Fund, July 31, 1914 
Accumulations 

Sales of lands $14,284,571.22 

Amounts paid on forfeitures, right of way, etc 167,420.28 

Sales of timber 6,727,720.87 

Mineral permits and leases 308,300.77 

Royalty on iron ore 2,818,665.51 

Profits on sales of bonds 361,569.94 

Total $24,668,248.59 



TABLE III-A 3 
Appropriations for Public Schools 





1914 


1915 


Aid for high and graded schools, including aid for industrial and training 


$706,500 
751,975 
31,500 
10,000 
44,000 
50,000 


$1,064,500 




898,475 




31,500 




10,000 




44,000 




50,000 






Total 


$1,593,975 


$2,098,475 







1 Eighteenth Biennial Report of the State Superintendent of Public Instruction, 11. Tables are 
numbered in consecutive order as they appear in this appendix, and not as they are numbered in 
the Report. 

* Ibid. 

* Ibid., 14. 



178 



APPENDIX 



TABLE III-B* 
Increases in State Aid 



Annual aid for high schools increased from $1,750 to $2,200 

Graded schools from 600 to 750 

High school training departments from 750 to 1,000 

Industrial departments from 1,000 to 1,800 

TABLE IV 6 
Apportionment of the Current School Fund from 1864 to 1914 





Spring 


Fall 


Total 


for Year 


Year 


Number 






Number 












Pupils 


Rate 


Amount 


Pupils 


Rate 


Amount 


Rate 


Amount 




Sharing 






Sharing 










1864 


64,330 


$0.45 


$ 29,173.50 


64,330 


$0.63 


$ 40,842.90 


$1.08 


$ 70,016.45 


1865 


74,695 


.13 


9,745.45 


74,956 


.61 


45,728.65 


.74 


55,474.10 


1866 


87,244 


.23 


20,066.12 


87,244 


.67 


58,453.48 


.90 


78,519.60 


1867 


102,118 


.24 


24,508.32 


102,118 


.66 


67,397.88 


.90 


91,906.20 


1868 


114,618 


.31 


35,531.58 


114,618 


.70 


80,262.90 


1.01 


115,794.48 


1869 


129,156 


.40 


51,662.40 


129,156 


.75 


96,867.00 


1.15 


148,529.40 


1870 


143,745 


.38 


54,623.10 


143,745 


.85 


122,183.25 


1.23 


176,806.35 


1871 


155,767 


.24 


37,384.08 


155,767 


.81 


126,171.27 


1.05 


163,555.35 


1872 


168,980 


.20 


33,839.20 


168,980 


.76 


128,424.80 


.96 


162,264.00 


1873 


180,271 


.22 


39,659.62 


180,271 


.74 


133,400.54 


.96 


173,060.16 


1874 


196,188 


.25 


49,047.00 


196,188 


.73 


143,217.24 


.98 


192,264.24 


1875 


210,450 


.22 


46,299.00 


210,450 


.69 


145,279.50 


.91 


191,578.50 


1876 


214,902 


.27 


58,023.54 


215,127 


.71 


152,740.32 


.98 


210,763.71 


1877 


152,585 


.35 


53,397.75 


152,692 


.96 


146,584.32 


1.31 


199,982.07 


1878 


157,970 


.35 


55,289.50 


158,229 


1.00 


158,299.00 


1.35 


213,518.50 


1879 


161,445 


.34 


54,891.30 


162,657 


1.09 


177,296.13 


1.43 


232,187.43 


1880 


165,521 


.40 


66,208.40 


167,525 


1.10 


184,277.50 


1.50 


250,485.90 


1881 


173,600 


.40 


69,440.00 


173,996 


1.10 


191,395.60 


1.50 


260,835.60 


1882 


177,278 


.33 


58,501.74 


178,131 


1.17 


208,413.27 


1.50 


266,915.01 


1883 


190,901 


.43 


82,087.43 


191,873 


1.15 


220,653.95 


1.58 


302.740.38 


1884 


201,649 


.39 


78,643.11 


202,219 


1.33 


268,936.64 


1.72 


347,579.75 


1885 


215,122 


.38 


81,746.36 


225,214 


1.06 


238,727.90 


1.44 


320,474.26 


1886 


225,930 


.42 


94,890.60 


243,059 


.93 


226,044.87 


1.35 


320,935.47 


1887 


243,645 


.52 


126,695.40 


245,381 


.95 


233,111.95 


1.47 


359,807.35 


1888 


245,875 


.72 


177,030.00 


212,490 


2.66 


565,233.40 


3.38 


742,253.40 


1889 


213,066 


1.05 


223,719.30 


214,568 


3.07 


658,723.76 


4.12 


882,443.06 


1890 


215,755 


.61 


131,610.55 


221,186 


3.70 


818,388.20 


4.31 


949,998.75 


1891 


221,522 


.90 


199,670.56 


227,966 


3.20 


729,491.20 


4.10 


929,161.76 


1892 


228,676 


1.22 


278,984.72 


233,293 


3.40 


793,196.20 


4.62 


1,072,180.52 


1893 


223,685 


.96 


224,337.60 


244,794 


3.00 


734,382.00 


3.96 


958,719.60 


1894 


245,245 


1.15 


282,031.75 


275,468 


2.75 


757,537.00 


3.90 


1,039,568.45 


1895 


276,193 


1.15 


317,621.95 


291,105 


2.65 


771,428.25 


3.80 


1,089,050.20 


1896 


291,776 


1.00 


291,776.00 


293,966 


2.00 


852,501.40 


3.90 


1,144,277.40 


1897 


294,267 


1.00 


294,267.00 


309,019 


2.50 


772,547.50 


3.50 


1,066,814.50 


1898 


309,586 


.80 


247,668.80 


324,651 


2.15 


697,999.65 


2.95 


945,668.45 


1899 


325,013 


.90 


292,584.28 


324,678 


2.73 


888,023.16 


3.63 


1,180,607.44 


1900 


325,766 


1.25 


407,436.82 


341,176 


2.65 


904,129.65 


3.90 


1,311,566.47 


1901 


341,609 


1.25 


427,512.10 


343,463 


1.85 


635,406.55 


3.10 


1,062,918.65 


1902 


343,662 


1.30 


446,760.60 


353,729 


2.00 


707,458.00 


3.30 


1,154,218.60 


1903 


353,918 


1.30 


460,093.40 


352,607 


2.30 


810,996.10 


3.60 


1,271,089.50 


1904 


352,867 


1.45 


511,657.15 


364,592 


2.20 


802,102.40 


3.65 


1,313,759.55 


1905 


365,090 


1.50 


547,635.00 


375,166 


2.30 


862,881.80 


3.80 


1,410,516.80 


1906 


375,289 


1.70 


637,991.30 


378,246 


2.29 


866,183.34 


3.99 


1,504,174.64 


1907 


378,251 


1.60 


605,201.60 


374,919 


2.50 


937,297.50 


4.10 


1,542,499.10 


1908 


375,088 


1.90 


712,667.20 


381,674 


2.70 


1,030,519.80 


4.60 


1,743,187.00 


1909 


381,875 


1.80 


687,348.00 


386,654 


3.00 


1,160,007.00 


4.80 


1,847,355.00 


1910 


386,599 


1.90 


734,472.10 


396,599 


3.00 


1,189,817.90 


4.90 


1,924,290.00 


1911 


396,706 


1.90 


753,741.40 


399,132 


3.00 


1,197,396.00 


4.90 


1,951,137.40 


1912 


399,121 


2.00 


798,242.00 


403,491 


3.30 


1,331,520.30 


5.30 


2,129,762.30 


1913 


403,470 


2.00 


806,940.00 


402,941 


3.60 


1,450,587.60 


5.60 


2,257,527.60 


1914 


403,141 


2.20 


886,910.20 


412,446 


3.60 


1,484,805.60 


5.80 


2,371,715.80 


Total 


$41,702,456.45 





















4 Eighteenth Biennial Report of the State Superintendent of Public Instruction, 
*Ibid., 12. 



APPENDIX 



179 



TABLE V 8 
Summary for Last Fifty-two Years 









Number of Schools Receiving Special State Aid 






Number 
of Pupils 
























Years 


Enrolled in 










First 


Second 






All Public 


High 


Graded 


Consoli- 


Semi- 


Class 


Class 


Class C 




Schools 


Schools 


Schools 


dated 


Graded 


Rural 


Rural 


Rural 










Schools 


Schools 


Schools 


Schools 


Schools 


1862 


32,560 
















1864 


44,787 
















1866 


50.564 
















1868 


81,696 
















1870 


105,590 
















1872 


120,352 
















1874 


128,902 
















1876 


151,866 
















1878 


162,551 
















1880 


180,248 
















1882 


196,574 


38 














1884 


223,209 


53 














1886 


252,053 


58 














1888 


253,894 


57 














1890 


280,960 


62 














1892 


300,333 


69 














1894 


342,761 


85 














1896 


354,657 


86 


87 












1898 


384,063 


100 


97 






457 






1900 


399,207 


115 


110 




190 


662 






1902 


414,671 


141 


119 




243 


747 






1904 


423,663 


162 


145 




270 


835 






1906 


431,690 


192 


142 




309 


1,094 


492 




1908 


430,748 


206 


152 




340 


1,305 


632 




1910 


440,082 


206 


165 




399 


1,860 


1,127 




1912 


446,083 


211 


201 


32 


435 


2,453 


1,396 


555 


1914 


457,041 


215 


222 


80 


463 


3,208 


1,435 


745 



TABLE VI 7 
Special Aid Summary 





Year Ending July 31, 1914 


Year Ending July 31, 1914 


Kind of School or 
Department 


Number 

of 

Schools 

Aided 


Total 

Amount 

Paid 


Deficit 
for Each 

School 
Not Paid 


Number 

of 

Schools 

Aided 


Total 

Amount 
Paid 


Deficit 
for Each 

School 
Not Paid 




216 
80 

105 

217 
59 

36 

2 

20 

451 

2,913 

1,394 

688 


$378,000.00 
60,000.00 

147,322.68 
18,950.00 

130,200.00 
29,500.00 

48,300.00 

1,800.00 

13,500.00 

36,751.00 

121,700.00 

393,255.00 
125,460.00 
46,784.00 


$150.00 

100.00 

75.00 

30.00 

15.00 

10.00 

7.00 


215 
105 

136 

222 
69 

52 

3 

25 

463 

3,208 
1,435 

745 


$471,951.00 
102,842.00 

268,840.64 
42,950.00 

165,394.27 
34,500.00 

74,100.00 

2,850.00 

17,800.00 

26,138.00 

131,955.00 

455,536.00 
136,325.00 
52,895.00 




Agricultural and industrial 












High school departments . . 
Consolidated schools: 
Class A 


$75.00 


Class B 


50.00 


Class C 


38.00 






Rural schools: 

Class A 


15.00 
8.00 


Class B 


5.00 


Class C 


4.00 






Total 


6,181 


$1,551,522.68 


$86,756.00 


6,678 


$1,984,076.91 




Total amount of deficit 


$49,070.90 



6 Ibid., 13. 
1 1bid., 27. 



180 APPENDIX 

TABLE VII-A* 
State Aid to High Schools Year Ending July 31, 1913 

216 High schools, $1,750 each $378,000.00 

80 Training departments, $750 each 60,000.00 

28 Agricultural departments, $1,817 to $2,500 each 67,646.00 

66 Industrial departments, $1,000 each 66,000.00 

Association (to central schools) $150 each 14,250.00 

Association (to district schools) $50 each 4,650.00 

$590,546.00 

TABLE VII-B 9 
High Schools, Year Ending July 31, 1914 

215 High schools, $1,930 to $2,200 each $471,951.00 

105 Training departments, $795 to $1,000 each 102,842.00 

37 Agricultural departments, $1,712 to $2,500 each 90,253.00 

81 Industrial departments, $1,800 each 145,800.00 

Association (to central schools) $150 each 34,800.00 

Association (to district schools) $50 each 8,050.00 

Total $853,696.00 

TABLE VIII-A 10 
Graded Schools, Year Ending July 31, 1913 

217 Graded schools, $600 each $130,200.00 

59 High school departments, $500 each '. 29,500.00 

9 Industrial departments, $1,000 each 9,000.00 

2 Agricultural schools 4,676.68 

1 Associated district, $50 50.00 

Total $173,426.68 

TABLE VIII-B 11 
Graded Schools, Year Ending July 31, 1914 

222 Graded schools, $581.22 to $750 each $165,394.27 

69 High school departments, $500 each 34,500.00 

16 Industrial departments, $1,365.08 to $1,800 each 28,356.29 

2 Agricultural departments, $2,100.00 to $2,500 each 4,431.35 

2 Associated districts, $50 each 100.00 



Total $232,781.91 

TABLE IX-A 12 
State Aid to Consolidated Schools, Year Ending July 31, 1913 

36 Class A schools, $1,050 to $1,350 each $48,300.00 

2 Class B schools, $900 each 1,800.00 

20 Class C schools, $675 each 13,500.00 

Building aid 36,751.00 

Total $100,351.00 

8 Eighteenth Biennial Report of the State Superintendent of Public Instruction, 27 

» Ibid., 34. 
10 Ibid., 30. 
ii Ibid., 37. 
" Ibid., 40. 



APPENDIX 181 

TABLE IX-B 13 
Consolidated Schools, Year Ending July 31, 1914 

52 Class A schools, $1,425 each $74,100.00 

3 Class B schools, $950 each 2,850.00 

25 Class C schools, $712 each 17,800.00 

Building aid 26,138.00 

Total $120,888.00 

TABLE X-A" 
Semi-graded Schools, Year Ending July 31, 1913 

451 Schools, $270 each $121,700.00 

TABLE X-B 15 
Semi-graded Schools, Year Ending July 31, 1914 

463 Schools, $285 each $131,955.00 

TABLE XI-A 16 
'. Class A, Year Ending July 31, 1913 

2,913 Schools, $135 each $393,255.00 

TABLE XI-B 17 
Year Ending July 31, 1914 

3,208 Schools, $142 each. $455,536.00 

« Ibid., 50. 
i* Ibid., 41. 

™ Ibid., SI. 
i« Ibid., 43. 
" Ibid., 52. 



BIBLIOGRAPHY 

Annual Reports of the Inspector of State High Schools, State of Minnesota. 1906, 

1908, 1911-13, 1915. 
Betts, George Herbert. New Ideal in Rural Schools. Boston. 1913. 
Bobbitt, J. F. High School Costs. The School Review 23. 1915. 
Bolton, F. E. Special State Aid to High Schools. Educational Review 31:411-66. 
Brown, C. F. The Making of Our Middle Schools. New York. 1903. 
Cubberley, Ellwood P. The Improvement in Rural Schools. Boston. 1912. 

Rural Life and Education. Boston. 1914. 

School Funds and Their Apportionment. New York. 1906. 

Department of Education. Circulars nos. 1, 3, 7, 13, and 15. Bulletins nos. 40 and 

45. St. Paul. 

Eighteenth Annual Report of the Inspector of State Graded Schools. State of 
Minnesota. St. Paul. 1913. 

Eighteenth Biennial Report, Superintendent of Public Instruction, Department of 
Education, Minnesota, for the School Years 1913 and 1914. St. Paul. 1915. 

Elliott, Edward C., Judd, Charles H., Strayer, George D. Expert Survey 
of Public School System, Boise, Idaho. 1912. 

Foght, Harold W. The Educational System of Rural Denmark. United States 
Bureau of Education Bulletin, 1913, no. 58. Washington. 1914. 

General Laws and Statutes of Minnesota for the different years, as cited. 1849-1915. 

Gillette, John M. Constructive Rural Sociology. New York. 1915. 

Johnston, Charles Hughes, and others. The Modern High School. New York. 
1915. 

Kiehle, David L. Education in Minnesota. Minneapolis. 1903. 

Knorr, George W. A Study of Fifteen Consolidated Rural Schools; Their Organ- 
ization, Cost Efficiency, and Affiliated Interests. Southern Education Board, 
Publication no. 6. Washington. 1911. 

Miller, James Collin. Rural Schools in Canada; Their Organization, Adminis- 
tration, and Supervision. New York. 1913. 

Minneapolis Journal. Minneapolis. May 3, 1915. 

Minnesota Legislative Manual. St. Paul. 1911. 

Minutes of the State High School Board. St. Paul. 1878-1912. 

M ON ah an, A. C. County Unit Organization for the Administration of Rural 
Schools. United States Bureau of Education Bulletin 1914, no. 44. Washing- 
ton. 1914. 

The Status of Rural Education in the United States. United States Bureau 

of Education Bulletin 1913, no. 8. Washington. 1913. 

Monroe, Walter S. Cost of Instruction in Kansas High Schools. Emporia. 

1915. 
Preston Times. Preston, Minnesota. May 11, 1916. 
Report of Minnesota Public Education Commission. St. Paul. 1914. 
Report of the Minnesota Tax Commission. St. Paul. 1912. 
Revised Statutes of Indiana. 1914. 
Spaulding, F. E. Annual Reports. In Annual Reports of the School Committee, 

Newton, Mass. 1911, 1912, 1913. 
Strayer, George D. City School Expenditures. New York. 1905. 
Swift, Fletcher Harper. A History of Public Permanent Common School Funds 

in the United States, 1795-1905. New York. 1911. 



BIBLIOGRAPHY 183 

Thorndike, E. L. Mental and Social Measurements. New York. 1904. 

Thirteenth Census of the United States, taken in 1910. Washington. 1913. 

Updegraff, H., and Hood, William R. A Comparison of Urban and Rural Com- 
mon School Statistics. United States Bureau of Education Bulletin, 1912, no. 
21. Washington. 1912. 

Woods, Frederick Adams. The Influence of Monarchs. New York. 1913. 

Young, J. S. Civil Government of Minnesota. New York. 1907. 



LSD 18 



STUDIES IN THE BIOLOGICAL SCIENCES 

1. Herbert G. Lampson, A Study on the Spread of Tuberculosis in Families. 
1913. $0.50. 

2. Julius V. Hofmann, The Importance of Seed Characteristics in the Natural 
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STUDIES IN LANGUAGE AND LITERATURE 

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4. Paul Edward Kretzmann, The Liturgical Element in the Earliest Forms 
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CURRENT PROBLEMS 

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2. Benjamin F. Pittenger, Rural Teachers' Training Departments in Min- 
nesota High Schools. 1914. $0.15. . 

3. Gerhard A. Gesell, Minnesota Public Utility Rates. 1914. $0.25. 

4. L. D. H. Weld, Social and Economic Survey of a Community in the Red 
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5. Gustav P. Warber, Social and Economic Survey of a Community in 
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6. Joseph B. Pike, Bulletin for Teachers of Latin. 1915. $0.25. 

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■:'\,r.-' 




